E 
53 \ 

•M34- 

Disunion and Restoration 
IN Tennessee 



% BY 

JOHN RANDOLPH NEAL, M.A., LL.B. 



Submitted in partial fulfillment of the requirements 
for the degree of doctor of philosophy 

IN THE 

Faculty of Political Science 
Columbia Universiiy 



NEW YORK 

Zbe IknicNerhocher press 

1899 




Qass. 
Book. 






Disunion and Restoration 
IN Tennessee 



JOHN RANDOLPH NEAL, M.A., LL.B. 



.-n 



Submitted in partial fulfillment of the requirements 
for the degree of doctor of philosophy 

IN THE 

Faculty of Political Science 
Columbia University 



NEW YORK. 

Ube IkniclterbocNer press 

1899 



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BY X^ 3 



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MA;1 13 tin 



CONTENTS. 



CHAPTER PAGE 

I. Separation ........ i 

II. Responsibility for Separatkjn . . . .12 

III. Loyalty of East Tennessee .... 16 

IV. Restoration of Civil Government ... 24 

V. Recognition by Congress ..... 32 

VI. Tennessee and the New Amendments . . 39 

VII. Financial Administration of the Radical 

Government ... .... 44 

VIII. Radical Municipal Administration ... 52 

IX. Ku-Klux Outrages 57 

X. Close of the Radical Domination ... 66 

XI. Constitutional Convention of 1870 ... 74 



f 



DISUNION AND RESTORATION IN 
TENNESSEE 



CHAPTER I 

SEPARATION 

The vote of Tennessee in the presidential election of i860 
shows conclusively that at that time a majority of her citi- t^ 
zens did not hold disunion sentiments. Her electoral vote 
was cast for John Bell and Edward Everett, who represented, 
as their platform expressed it, " no political principle other 
than the Constitution of the country, the Union of the 
States, and the enforcement of the laws." 

The first step toward secession was not the result of popu- 
lar initiative, but was mainly due to the efforts of the Gov- 
ernor of the State, Isham G. Harris. Governor Harris had 
entered public life just after the rupture between Andrew 
Jackson and Hugh Lawson White, which had resulted in 
the formation, in Tennessee, of the Whig party. For thirty 
years the Whigs and Democrats contended for the control of 
the State. They were so equally matched that victory often 
turned upon the individual strength of the candidate. This 
resulted in the development of a class of public men who 
possessed, in a high degree, the usually divergent abilities 
of public speakers and party leaders. From this school of 
practical politics were graduated James K. Polk, Cave John- 
son, Felix Grundy, John Bell, and Andrew Johnson. 

The contest between the Whigs and Democrats, which 



2 DISUNION AND RESTORATION 

was at first merely a personal quarrel, soon ripened into a 
division along true party lines. The Democrats, after the 
death of Andrew Jackson, joined the national Democratic 
party in its struggle for the perpetuation and extension of 
slavery. The Whigs on the other hand shared in the broad 
policies and national aspirations of the national Whig 
party. 

Governor Harris had at the very beginning of his career 
allied himself with the Democrats. As early as 1849, "^^^ ^'^^^ 
been elected to Congress, where he became conspicuous for his 
advocacy of extreme State rights. In 1857 he defeated Neil 
S. Brown for governor, and was re-elected in 1859. -^^ ^^s 
not difificult to predict what his action would be in the crisis 
of i860. Immediately after the election of President Lin- 
coln, he issued a call for an extra session of the Legislature. 
It convened on the seventh day of January, and on the same 
day he sent in his message. This message is worthy of 
study, as it has been pronounced by a distinguished writer 
to be " the ablest and most succinct as well as the most in- 
telligent presentation and justification of the reasons for the 
action of the seceding States." ' It began with the following 
description of the crisis confronting the State : " The long, 
systematic, and wanton agitation of the slavery question, 
with actual and threatened aggressions of the Northern 
States and a portion of their people upon the well-defined 
constitutional rights of the Southern citizens, the rapid in- 
crease of a purely sectional party, whose bond of union is 
uncompromising hostility to the rights and institutions of 
the fifteen Southern States, have produced a condition in 
the affairs of the country unparalleled in the history of the 
past, resulting already in the withdrawal from the Confed- 
eracy of one of the sovereignties which compose it, while 
others are rapidly preparing to move in the same direction." * 

' Cox : Three Decades of Federal Legislation. 

■■"Acts of Tennessee, Extra Session, i86r, pp. i to 13. 



SEPARA TION 3 

This opening statement was followed by an historical re- 
view in which was traced the growth of the Republican party. 
The offences it had committed against the Southern States 
were then enumerated. Among other things, he said : 

" It has sought to appropriate to itself, and to exclude 
the slaveholders from, the territory acquired by the common 
blood and treasure of all. It has, through the instrument- 
ality of the Emigrants' Aid Society under State patronage, 
flooded the territories with its minions armed with Sharp's 
rifles and bowie knives, seeking thus to accomplish by in- 
timidation, violence, and murder what it could not do by 
constitutional means. 

" It claimed the constitutional right to abolish slavery in 
the District of Columbia, the forts, arsenals, dock-yards, and 
other places ceded to the United States within the bounds 
of the slaveholding States. It proposed a prohibition of 
the slave-trade between the States, thereby crowding the 
slaves together, and preventing the exit south until they 
became unprofitable to such an extent that it would force the 
owner finally to abandon them in self-defence. It has, by 
the deliberate legislative enactments of a large majority of 
the Northern States, openly and flagrantly nullified the clause 
of the Constitution which provided for the return of fugitive 
slaves. 

" It has, through the executive authority of the States, 
denied the extradition of murderers and marauders. 

" It obtained its own compromise in the Constitution to 
continue the importation of slaves, and now sets up a higher 
law than the Constitution to destroy the property imported 
and sold to us by their fathers. 

" It has caused the murder of owners in the pursuit of the 
fugitive slave, and shielded from punishment the murderers. 

" It has on many occasions sent its emissaries into the South- 
ern States to corrupt our slaves, induce them to run off, and 
excite them to insurrection. It has by its John Brown and 



4 DISUNION AND RESTORATION 

Montgomery raids invaded sovereign States and murdered 
peaceful citizens. It has justified and exalted to highest 
honors of admiration the horrid murders, arsons, and rapines 
of the John Brown raid, and canonized the felons as saints 
and martyrs. 

" It has burned the towns, poisoned the cattle, and con- 
spired with the slaves to depopulate Northern Texas. In has 
through certain leaders proclaimed to the slaves the terrible 
motto : ' Alarm to the sleep, fire to the dwelHngs, and poison 
to the food and water of the slaveholders.' 

" It has repudiated the decision of the Supreme Court. 

" It has assailed our rights, guaranteed by the plainest pro- 
visions of the Constitution, from the floor of each House of 
Congress, the pulpit, the hustings, the schoolroom, their 
State Legislatures, and through the public press, dividing 
churches, and disrupting poHtical parties and civil govern- 
ment." 

The party that had committed the offences enumerated 
was in possession of the House of Representatives, and h'ad 
elected one of its leaders to the presidency, and in the pro- 
gress of events the Supreme Court and Senate must also pass 
into its hands. With such a party in power, Governor 
Harris contended that the Union could be preserved only 
on the condition that certain amendments to the Constitu- 
tion should be adopted, which would put slavery beyond its 
attacks. 

The amendments he suggested were : 

1. Establish a line upon the northern boundary of the 
present slave States, extend it through the territories to the 
Pacific Ocean, upon such parallel of latitude as will divide 
them equitably between North and South, expressly provid- 
ing that all territory now owned, or that may be hereafter 
acquired, north of said line shall be forever free, and south 
of it forever slave. 

2. In addition to the fugitive-slave clause, provide, that, 



SEPARA TION 5 

whenever a slave has been demanded of the executive 
authority of the State to which he has fled, and is not 
delivered, and the owner permitted to carry him out of the 
State in peace, the State so failing to deliver shall pay 
to the owner double the value of such slave, and secure his 
right of action in the Supreme Court. 

3. Provide for the protection of the owner in the peace- 
able possession of his slave while in transition or temporarily 
sojourning in any of the States of the Confederacy, and, in 
the event of the slave's escaping or being taken from the 
owner, require the State to return, or account for, him as in 
the case of a fugitive. 

4. Especially prohibit Congress from abolishing slavery in 
the District of Columbia, in any dock-yard, navy-yard, arse- 
nal, or any district of any character whatever, within the 
limits of any slave State. 

5. Provide that these amendments shall never be changed 
except by consent of all the slave States. 

With these amendments to the Constitution, Governor 
Harris said that he could feel that the rights of the Southern 
States were reasonably secure, not only in theory, but in 
fact, and should indulge the hope of living in the Union in 
peace. " If the non-slaveholding States refuse to comply 
with a demand so just and reasonable ; refuse to abandon at 
once and forever their unjust war upon us, our institutions, 
and our rights ; refuse, as they have heretofore done to per- 
form, in good faith, the obligations of the compact of the 
Union, much as we appreciate the power, prosperity, and 
glory of this government, deeply as we deplore the existence 
of the causes which have already driven one State out of 
the Union, much as we regret the imperative necessity 
which they have wantonly and wickedly forced upon us, 
every consideration of self-preservation and self-respect re- 
quires that we should assert and maintain our equality in 
the Union, or our independence out of it." 



6 DISUNION AND RESTORATION 

The message closed with the following recommendation to 
the Legislature : " I recommend that you provide by law for 
submitting to the people of the State the question of Con- 
vention or No Convention ; and also the election of dele- 
gates by the people to meet in State Convention at the 
Capitol at Nashville, at the earliest day practicable, to take 
into consideration our federal relations, and determine what 
action shall be taken by the State of Tennessee for the 
security of the rights and the peace of her citizens. This 
will place the whole matter in the hands of the people, for 
them, in their sovereignty, to determine how far their rights 
have been violated, the character of the redress or guaranty 
they will demand, or the action they will take for their 
present and future security." 

The Legislature proceeded without delay to put into effect 
the recommendations contained in Governor Harris's mes- 
sage. On January 19th it passed an act known as the Con- 
vention Bill,' which provided for submitting the question of 
holding a convention to the vote of the people. The con- 
vention was to take into consideration the relation between 
the government of the United States and the people of the 
State, and was to have the power to adopt any measures for 
vindicating the sovereignty of the State and the people it 
saw fit. 

Only a few days intervened between the passage of the 
Convention Bill and the day appointed for taking the popu- 
lar vote ; nevertheless, an exciting canvass of the State 
ensued. The people came together in vast crowds to hear 
the question debated. The Whig leaders were almost 
unanimous in their opposition. They were joined by the 
Democrats of East Tennessee. The vote was taken on the 
fifth of February, 1861. The result was : 24,749 for the Con- 
vention ; and, 91,803 against it. 

This defeat put a stop for the moment to all official 

' Acts of Tennessee, Extra Session, 1861, p. 14. 



SEPARATION 7 

action, as the Legislature had adjourned, but the public agi- 
tation and discussion continued. The disunion sentiment 
began to grow very rapidly as a result of events which were 
transpiring outside the State. Amid the intense excitement 
which followed the taking of Fort Sumter, Governor Har- 
ris issued a call for a second extra session of the Legislature. 
On the 1 8th of April he had replied to President Lincoln's 
call for troops : " Tennessee will not furnish a single man for 
coercion, but fifty thousand, if necessary, for the defence of 
our rights and those of our Southern brothers." 

The Legislature convened on the twenty-seventh of April. 
The public were excluded from its meeting, and its members 
were pledged to secrecy. The session opened with the 
reading of the gubernatorial message,' which asserted that 
the President of the United States had wantonly inaugurated 
an internecine war upon the people of the slave States. 
"This war," he said, " is likely to assume an importance, 
nearly, if not equal to the struggle of our revolutionary 
fathers in their patriotic efforts to resist usurpations and 
throw off the tyrannical yoke of the British Government. 

" This declaration of war upon the South has virtually 
dissolved the Union. It will be idle to speak of ourselves 
any longer as members of the Federal Union ; and it is be- 
lieved by many whose opinions are entitled to the highest 
respect, that, by reason of the subversion of the Constitution 
by the authorities in power, inaugurating a revolution be- 
tween the States thereof, each and every individual is 
already released from his obligations to that government ; 
yet, as best comports with the dignity of the subject, and 
also from due regard to those who may hold a different 
opinion — and further still, that all the world may be advised 
of our action, — I respectfully recommend that our connec- 
tions with the Federal Union be formally annulled in such 
manner as shall involve the highest exercise of the sovereign 
'Acts of Tennessee, 2d Extra Session, 1861, pp. i to 11. 



8 DISUNION AND RESTORATION 

authority of the people of the State and best secure that 
harmony, so much to be desired, in times like the present, in 
questions of detail. The speediest method of accomplish- 
ing this will be the perfecting of an ordinance by the Legis- 
lature formally declaring the independence of the State of 
Tennessee of the Federal Union, renouncing its authority, 
and resuming each and every function belonging to a 
separate sovereignty ; and said ordinance when perfected 
should be submitted to a vote of the people to be by them 
adopted or rejected. Under existing circumstances I can 
see no propriety in encumbering the people of the State 
with the election of delegates, to do that which is in our 
power to enable them to do directly for themselves. The 
most direct as well as the highest act of sovereignty, accord- 
ing to our theory, is that by which the people vote, not 
merely for men, but for measures submitted for their ap- 
proval or rejection. Since it is only the voice of the people 
that is to be heard, there is no reason why they may not as 
readily and effectively express themselves upon an ordinance 
framed and submitted to them by the Legislature as if 
submitted by a convention." 

The Legislature was as eager as before to execute the will 
of the Governor. It embodied his recommendations in an 
act passed May 6, 1861.' This act contained two important 
provisions. The first was : 

" Declaration of Independence and Ordinance dissolving 
the federal relations between the State of Tennessee and 
the United States of America. 

We the people of the State of Tennessee, waiving any ex- 
pression of opinion as to the abstract doctrine of secession, 
but asserting the right, as a free and independent people, to 
alter, reform, or abolish our form of government in such 
manner as we think proper, do ordain and declare, that all 
the laws and ordinances by which the State of Tennessee 
' Acts of Tennessee, 2d Extra Session, 1861, p. 13. 



SEPARA TION g 

became a member of the Federal Union of the United 
States of America are hereby abrogated and annulled, and 
that all obligation on our part be withdrawn therefrom ; 
and we do hereby resume all the rights, functions, and 
powers which by any of said laws and ordinances were con- 
veyed to the Government of the United States, and absolve 
ourselves from all obligations, restraints, duties, incurred 
thereto ; and do hereby henceforth become a free, sovereign, 
and independent State." 

This ordinance was to be submitted to a direct vote of the 
people. Two sets of tickets were to be prepared ; one set 
marked Separation, the other Non-Separation. Those 
favoring the ordinance were to vote the former ticket, those 
opposed, the latter. The act of May 6th further provided 
for the submission at the same election of the question as to 
whether Tennessee, if it severed its relations with the 
Union, should join the Confederacy. This question was also 
embodied in the form of an Ordinance. 

But the Governor and the Legislature did not wait for 
the popular verdict upon these Ordinances. As early as 
May 7th, they extended an invitation to the Confederacy to 
select Nashville as its capital city. A few days later a still 
more extraordinary step was taken. Governor Harris, 
acting under a joint resolution of the Legislature, appointed 
three commissioners to negotiate a military league with the 
Confederate authorities. These commissioners, representing 
the State of Tennessee, and Mr. Henry W. Hilliard, an agent 
of the Confederacy, drew up the following agreement : 

" Convention between the State of Tennessee and 
Confederate States of America.' 

" The State of Tennessee, looking to a speedy admission 
into the Confederacy established by the Confederate States 
of America, in accordance with the Constitution for the 
Provisional Government of said States, enters into the fol- 

' Acts of Tennessee, 2d Extra Session, 1861, p. 19. 



10 



DISUNION AND RESTORATION 



lowing temporary Convention, Agreement, and Military- 
League with the Confederate States, for the purpose of 
meeting pressing exigencies affecting common rights, in- 
terests, and safety of said State and said Confederacy. 

" First. Until the said State shall become a member of 
said Confederacy, according to the constitutions of both 
powers, the whole military force and military operations, 
offensive and defensive, of said State in the impending con- 
flict with the United States, shall be under the chief control 
and direction of the President of the Confederate States, 
upon the same basis, principle, and footing as if said State 
were now during the interval a member of said Confederacy, 
said force, together with that of the Confederate States, to 
be employed in common defence. 

" Secondly. The State of Tennessee will, upon becoming 
a member of said Confederacy under the permanent Consti- 
tution of said Confederate States, if the same shall ever 
occur, turn over to the Confederate States all the public 
property acquired from the United States on the same 
terms as the other States of said Confederacy have done in 
like case." 

This agreement was laid before the Legislature in a 
special message, and almost unanimously ratified. Its pro- 
visions were promptly executed. The vote of the people 
upon the Declaration of Independence and the Ordinance 
adopting the Provisional Constitution of the Confederacy 
did not occur till the eighth of June. The result of the 
vote, as shown by the official returns, was as follows : 





Separation. 


No Separation. 


East Tennessee 


14,780 

58,265 

29,127 

6,246 


32,923 
7,956 
6,117 


Middle Tennessee 

West Tennessee 

Camps 






Total 


108,418 


46,006 









SEPARA TION 


II 




Representation. 


No Representation. 


East Tennessee 


14,061 

58,198 

28,912 

6.340 


32,962 
8,298 
6,104 


Middle Tennessee 

West Tennessee 

Camps 


Total 


107,511 


47,364 



Immediately after the election, Gov. Harris issued a 
proclamation announcing Tennessee's withdrawal from the 
Union. This was followed by the proclamation of Jefferson 
Davis, ofificially declaring that Tennessee had become a 
member of the Confederacy. On the first of August the 
State adopted the permanent Confederate Constitution by 
vote of 83,133 for, 30,357 against. 

Nothing now remained to complete Tennessee's absorp- 
tion into the Confederacy but the election of representatives 
to the Confederate Congress. In October, the Legislature 
selected Langdon C Haynes and Gustavus Henry as Con- 
federate Senators. Haynes was a distinguished Democrat 
of East Tennessee, while Henry was a Whig. Representa- 
tives to the Lower House were chosen by a vote of the 
people. Here again the Whigs and Democrats were equally 
represented. 



CHAPTER II 

RESPONSIBILITY FOR SEPARATION 

Just as radical differences of opinion have existed as to 
the parties responsible for the whole secession movement, so 
the action of Tennessee has been variously interpreted. A 
number of writers have contended that the majority of her 
citizens were never in favor of secession, and it was only a 
coup d' ^tat of Governor Harris that carried the State into 
the Confederacy. This view is a survival of the opinion once 
so widely prevalent in the North that the Civil War was the 
result of a conspiracy of a few ambitious Southern politi- 
cians, who tricked the mass of the Southern people into 
a war which never had their genuine approval. 

It must be confessed that at first view the mode of Tennes- 
see's withdrawal gives some countenance to this theory. 
In February, 1861, she had placed her disapproval upon 
secession by voting down a proposition to call a convention. 
Instead of yielding to this mandate of the people. Gover- 
nor Harris and the Legislature had entered into a military 
league with the Confederate authorities, and having thus 
surrendered the real control of the State, they again went 
through the form of appealing to a plebiscite for approval of 
their action. Nevertheless, we are confident that an un- 
prejudiced examination of these events will show that Ten- 
nessee, with the exception of the eastern part of the State, 
joined the Confederacy as willingly as South Carolina or 
Mississippi. 

In the first place, these writers have made the mistake of 
classing Tennessee among the border States. Mr. Wilson 
in his History of the Slave Power says : " Exactly why 



RESPONSIBILITY FOR SEPARATION 1 3 

Tennessee should have been taken out of the Union, while 
Maryland, Kentucky, and Missouri were prevented from 
going, no man is wise enough to say. At least, none but 
general reasons can be given. Exactly why the conspirators 
were foiled in one case and not in the other, exactly by whom 
the current of treason was checked and turned in the one 
and not in the other, the wisest can only conjecture." 

The answer to the problem which Mr. Wilson found so 
difficult to solve lies in the fact that conditions in Tennessee 
were in no wise similar to those in Maryland, Kentucky, and 
Missouri. These border States were not distinctly slave 
States. In all of them the institution of slavery existed, but 
their industrial system was not based upon it. This arose 
largely from the fact that cotton was not their chief staple. 
Tennessee, on the other hand, was a great cotton-producing 
State, According to the census of i860, her annual product 
was 296,465 bales of 400 lbs. each. Her interest was there- 
fore identical with the extreme Southern States. If there 
were to be two republics side by side, one free and the other 
slave, both sentiment and interest apparently demanded that 
Tennessee should cast her lot with the latter. 

When the vote of February was taken she was confronted 
by no such dilemma. At that time, the Confederacy had 
not yet been organized, and it was by no means clear that 
war would occur. In June, conditions had entirely changed. 
The Confederacy was an established fact, and actual 
hostilities had commenced. Neither side would permit 
Tennessee to occupy a neutral position. She must fight 
either for or against the South. 

This change in the issues is clearly shown in the two 
messages of Governor Harris. In his message of January 
7th, he had sought to establish the right of secession, and 
justify its present or immediate assertion. But these 
principles had found no support in the Whig party. Their 
opposition defeated the proposal for a convention. The 



14 DISUNION AND RESTORATION 

keynote to his second message is found in the following 
passage : " Whatever differences may have heretofore 
existed amongst us growing out of party divisions, as to the 
constitutional right of secession as a remedy against usur- 
pations, all admit the moral right asserted by our fathers to 
resist wrong and to maintain their liberties by whatever 
means necessary." This was a direct appeal to the right of 
revolution, and it found as ready a response among the 
Whigs as the Democrats. It was therefore this change in 
the issue, and not coercive means adopted by Governor 
Harris, that turned the tide toward disunion. 

The recognized leader of the Whig party was John Bell. 
Throughout his long career in the service of the national 
government, he had consistently opposed the doctrine of 
secession. In the presidential election of i860, he, even 
more than Mr. Lincoln, was the Union candidate. When 
the question of holding a convention was submitted to a 
vote of the people, he vigorously opposed it. In this 
opposition he was joined by Neil S. Brown, Cave Johnson, 
Ewing, and other distinguished Whig politicians. It was 
due to their efforts that the Convention proposal was de- 
feated. The vote against the Convention was 91,803. This 
represented the entire Whig party, and the Democrats of 
East Tennessee. The votes cast for the Convention came 
almost wholly from the Democrats of Middle and West 
Tennessee. In short, the election of February was a 
division along party lines. Its result was simply an indica- 
tion that the Whig party of Tennessee was still opposed to 
the doctrine of secession. 

In June, party lines had been obliterated. For only a 
few weeks elapsed after the defeat of the Convention, till a 
majority of the Whig leaders, either in public addresses or 
through the public press, counselled withdrawal from the 
Union. The contest now became sectional ; it was East 
Tennessee against Middle Tennessee and West Tennessee. 



RESPONSIBILITY FOR SEPARATION 1 5 

Governor Harris, in his negotiations with the Confederate 
authorities, was counselled and supported by both Whigs and 
Democrats. Although the unfavorable verdict of the people 
upon secession had not been formally reversed, he was con- 
scious that a real change had taken place in their sentiments, 
and that he was, in fact, executing their will by concluding 
a military league with the Confederacy. 



CHAPTER III 

LOYALTY OF EAST TENNESSEE 

While we have attempted to show the untenable position 
of those who maintain that the majority of the people of 
Tennessee were opposed to separation and it was only a 
coup d'etat of Governor Harris that carried the State into the 
Confederacy, it is, however, true that a great number of her 
inhabitants did resist withdrawal and remain openly loyal. 
This was especially the case with East Tennessee. Her per- 
sistent loyalty is a striking illustration of the physical 
conditions and causes which lay behind the Civil War. Ten- 
nessee had been settled by a common stock of pioneers 
from North Carolina. Many of these, attracted by the 
beautiful scenery and genial climate, had found homes east 
of the Cumberland Mountains, while others had crossed the 
mountains and taken possession of the rich tablelands and 
the alluvial bottoms of Middle and West Tennessee. When 
the State was admitted into the Union, in 1796, her popu- 
lation was homogeneous. The institution of slavery existed 
in all sections of the State. 

In West and Middle Tennessee, where the soil and climate 
were suitable for raising cotton, slave labor was very profita- 
ble. In East Tennessee, the poor upland farms scarcely 
yielded a return to white labor. As the result of this differ- 
ence in natural conditions, slavery flourished in West and 
Middle Tennessee, but in East Tennessee, by i860, it had 
become almost extinct, except upon the rich plantations that 
bordered the Tennessee River. The efforts to form a Con- 
federacy based upon slavery found, therefore, no support 
among the inhabitants of East Tennessee. Their interests 

16 



LOYALTY OF EAST TENNESSEE IJ 

and sympathy were with the free States of the North, and 
they rejected by a vote of two to one every proposal looking 
toward separation. 

In the eyes of the nation, Andrew Johnson stood as the 
representative of East Tennessee loyalty. Upon the floor of 
the United States Senate he denounced the withdrawal of 
the Southern members as treason, and refused to vacate his 
own seat even after Tennessee had been proclaimed by 
Jefferson Davis a part of the Confederacy. 

Next to Johnson, the most prominent Union man was W. 
G. Brownlow, the editor of the Knoxville Whig. Mr. Brown- 
low is in many respects the most unique figure in the his- 
tory of Tennessee. He commenced life as a carpenter's 
apprentice, but after serving his apprenticeship he entered 
the Methodist ministry and travelled as a circuit rider for 
ten years without intermission. His love of controversy 
led him into most of the political and religious discussions 
of the day, and gained for him the name of the " Fighting 
Parson." About 1835 he became the editor and publisher 
of a Whig newspaper, which rapidly gained a larger circula- 
tion than any other political paper in the State. 

In the presidential election of i860 Mr. Brownlow sup- 
ported Bell and Everett. After the election his voice was 
on the side of peaceful acquiescence in the results. In 
vigorous editorials he denounced the sentiments expressed 
in the message of Governor Harris to the extra session of the 
Legislature. After the passage of the Convention Bill he 
joined several prominent citizens in issuing a call for an 
" East Tennessee Convention." Every county in East Ten- 
nessee except two responded to the call. The Convention 
assembled at Knoxville, on the 13th of May, 1861. The 
delegates present numbered four hundred and sixty-nine, and 
represented twenty-eight counties. Hon. Thos. A. R. Nelson 
was elected chairman. On motion, he appointed a commit- 
tee to prepare and report business for the Convention. 



1 8 DISUNION AND RESTORATION 

This committee drew up an address to the people, which 
was in part as follows : ' 

" Our country is at this moment in a most deplorable 
condition. The Constitution of the United States has 
been openly contravened and set at defiance, while that of 
our own State has shared no better fate, and by the 
sworn representatives of the people has been utterly dis- 
regarded. In this calamitous state of affairs, when the 
liberties of the people are so imperilled and their most 
valued rights endangered, it behooves them, in their primary 
meetings and in all their other accustomed modes, to as- 
semble, consult calmly as to their safety, and with firmness to 
give expressions to their opinions and convictions of right. 

" We, therefore, the delegates here assembled, represent- 
ing and reflecting, as we verily believe, the opinions and 
wishes of a large majority of the people of East Tennessee, 
do resolve and declare ; 

"That the evils which now afflict our beloved country, in 
our opinion, are the legitimate offspring of the ruinous and 
heretical doctrine of secession ; and that the people of East 
Tennessee have ever been, and we believe still are, opposed 
to it by a very large majority. That while the country is 
now upon the very threshold of a most ruinous and deso- 
lating Civil War, it may with truth be said, and we protest 
before God, that the people, so far as we can see, have done 
nothing to produce it. That the people of Tennessee, when 
the question was submitted to them in February last, de- 
cided by an overwhelming majority that the relations of 
the State towards the Federal Government should not be 
changed ; thereby expressing their preference for the Union 
and the Constitution under which they had lived prosperously 
and happily, and ignoring in the most emphatic manner the 
idea that they had been oppressed by the General Govern- 
ment in any of its acts, legislative, executive,or judicial. 

' Hume's, Loyal Mountaineers of Tennessee. 



LOYALTY OF EAST TENNESSEE I9 

" That in view of a so decided expression of the will of the 
people, in whom all power is inherent and on whose author- 
ity all free governments are founded, and in the honest 
•conviction that nothing has transpired since that time which 
should change that deliberate judgment of the people, we 
have contemplated with peculiar emotions the pertinacity 
with which those in authority have labored to over-ride the 
judgment of the people and to bring about the very re- 
sult which the people themselves had so overwhelmingly 
condemned. 

" That the Legislative Assembly is but the creature of the 
•Constitution of the State, and has no power to enact any 
laws or to perform any act of sovereignty, except such as 
may be authorized by that instrument : and believing, as we 
do, that in their recent legislation, the General Assembly 
have disregarded the rights of the people and transcended 
their own legitimate powers, we feel constrained, and we in- 
voke the people throughout the State, as they value their 
liberties, to visit that hasty, unconsiderate, and unconstitu- 
tional legislation with a decided rebuke, by voting on the 
eighth day of next month against both the Act of Secession 
and that of Union with the Confederate States. 

" That the Legislature of the State, without having first 
obtained the consent of the people, had no authority to 
•enter a 'Military League' with the 'Confederate States' 
against the General Government, and by so doing to put the 
State of Tennessee in hostile array against the Government 
of which it then was and still is a member. Such legislation 
is in advance of the expressed will of the people to change 
their governmental relations, was an act of usurpation, and 
should be visited with the severest condemnation of the 
people." 

This report was unanimously adopted by the Convention 
and ordered to be printed, so that it might be circulated 
among the voters of the State. Before the Convention ad- 



20 DISUNION AND RESTORATION 

journed it was addressed by Andrew Johnson. According 
to a contemporary report, " he spoke for three hours and 
commanded earnest attention throughout his entire speech." 

In the election of June 8th, the vote of East Tennessee 
stood: 14,780, separation; 39,923, no separation; 14,601^ 
representation ; 32,962, no representation. 

Nine days afterthe election, a second Convention of Union 
men assembled at Greenville. Two hundred and ninety- 
nine delegates were present. Many of them were in favor 
of forming at once a Provisional Government and organizing 
an army, but after a heated discussion more moderate coun- 
sel prevailed. A Declaration of Grievances was drawn up 
by the same committee that had prepared the address to the 
people adopted by the Knoxville Convention. A new com- 
mittee was appointed to prepare and present a memorial to 
the State Legislature, asking its consent to the formation of 
a new State to be composed of East Tennessee and such 
counties in Middle Tennessee as desired to cooperate to that 
end. But before this committee had an opportunity ta 
present the memorial to the Legislature the Confederate 
Government had put it beyond the power of Tennessee to act 
in the matter by organizing East Tennessee into a military 
department, and placing General Zolicoffer in supreme com- 
mand. His presence in Knoxville with several regiments of 
soldiers prevented any further steps towards the formation 
of a new State hostile to the Confederacy. 

There was at first no disposition on the part of the Con- 
federate authorities to deal harshly with the loyal in- 
habitants of East Tennessee, or to coerce them into the 
Confederate army. They were allowed to remain undis- 
turbed in their ordinary occupations. The general leniency 
with which they were treated is shown by the fact that Mr. 
Brownlow was allowed to continue the publication of the 
Knoxville Whig, although every issue contained editorials 
denouncing the action of Governor Harris and the Legisla- 



LOYALTY OF EAST TENNESSEE 21 

ture as treason and rebellion. This peaceful policy was 
rudely disturbed by an act of the Union men themselves. 
On the night of the eighth of November, an organized con- 
spiracy was partially carried out by the bands of Union 
men, to burn the bridges of the East Tennessee, Virginia, 
and Georgia Railway. The bridges over the Hiwassee 
River, Lick Creek, and three other streams were destroyed. 
That one over the Holston River at Strawberry Plains was 
saved by the bravery of the watchmen. 

This attempt at bridge-burning created the utmost alarm 
and excitement. The East Tennessee, Virginia, and Georgia 
Railway was the main artery which connected Richmond 
with the southwest. Thousand of troops were being hurried 
over it daily in order to reach Richmond in time to defend 
it from McClellan's advances. The road traversed the whole 
eastern part of the State, and on account of its extent could 
not be properly patrolled. Extraordinary measures must 
thereupon be resorted to, in order to keep open this im- 
portant line of communication, and protect the lives of the 
soldiers from the terrible disaster which would have resulted 
from the secret destruction of the bridges. 

On the 25th of November, the Confederate Secretary of 
War, Mr. Benjamin, sent the following orders to Colonel 
Wood, who was in command of the troops at Knoxville: 

" All such as can be identified in having been engaged in 
bridge-burning are to be tried summarily by drum-head 
court-martial, and if found guilty, executed on the spot by 
hanging. It would be well to leave their bodies hanging in 
the vicinity of the burned bridges." 

This order was vigorously executed. A number of per- 
sons suspected of complicity in the bridge-burning were 
seized, and after a summary trial were executed in the man- 
ner suggested by the Secretary of War. Martial law was 
proclaimed, and the meetings of Union men forcibly 
dispersed. 



22 DISUNION AND RES TOE A TION 

As a result of these measures there now began a general 
exodus of the able-bodied Union men. In small bands 
they crossed over the mountains into Kentucky. Many of 
them joined the Federal army, and rendered valuable 
service. Others formed camps safely within the Union 
lines, and quietly awaited the termination of the war. 
Their most prominent leaders made tours of the Northern 
cities, and raised funds for their support. Boston alone 
contributed over one hundred thousand dollars to this 
purpose.' Vast crowds listened to the eloquent appeals 
of these exiled loyalists, and the impression became general 
in the North that the Southern authorities were treating 
the loyal mountaineers of East Tennessee with the most 
savage cruelty. Edward Everett, in a brilliant oration, 
compared them with followers of William Tell and the 
slaughtered saints of Piedmont. 

The sacrifices and sufferings of the loyal inhabitants of 
East Tennessee were indeed very great, but there is no 
evidence that they were treated by the Confederacy in any 
manner not necessary and justified by the usages of war. 
After the failure of its conciliatory policy, the Confederacy 
either had to permit the erection of a hostile State within 
the heart of its territorj^ or coerce the loyalists into submis- 
sion. It naturally adopted the latter alternative. It is 
frequently stated that in thus adopting coercive methods it 
acted inconsistently with the principles under which it with- 
drew from the Union. Mr. Everett, in the same speech 
quoted above, said : " One would suppose that under the 
usurped rule of men who profess to go to war for self- 
government and State rights, the people of East Tennessee, 
if for any reason they saw fit to do so, had a right to burn 
their own bridges." 

The absurdity of such statements lies in the fact that they 
confuse the denial of coercive powers to federal government, 

' See Everett's "Account of the Fund for the Relief of East Tennessee." 



LOYALTY OF EAST TENNESSEE 23 

with the denial of coercive powers to all government. The 
first is State rights, but the second is anarchy. It was in 
perfect harmony with the Southern theory of State 
sovereignty, that Tennessee should use any means it saw fit, 
to force its citizens into obedience to its laws. The Con- 
federate army acted as the agent of the State in quelling 
insurrection and rebellion in East Tennessee. 

After the intense excitement created by the bridge- 
burning had somewhat subsided, the Confederate and State 
authorities again manifested a desire to win over, or at least 
conciliate, the Union element. The commander at Knoxville 
issued a proclamation to the " Disaffected People of East 
Tennessee," and assured " all those interested who have fled 
to the enemy's lines, and who are actually in their army, 
that he will welcome their return to their homes and their 
friends ; they are offered amnesty and protection, if they 
come to lay down their arms, and act as loyal citizens." 
But these conciliatory measures again met with failure, as it 
soon became necessary to enforce the military drafts, which 
aroused the greatest opposition. In the summer of 1863, 
East Tennessee became the theatre of active war. Its 
history for the next three years is to be found in the 
military annals of the State. 



CHAPTER IV 

THE RESTORATION OF CIVIL GOVERNMENT 

While Tennessee escaped both executive and congres- 
sional reconstruction, it did not follow in the restoration of its 
civil government the plan laid down by President Lincoln. 
The most distinctive feature of Lincoln's reconstruction 
policy lay in the fact that it made the old political people 
in each of the Southern States self-acting nuclei, which were 
to bring order out of chaos. According to this theory, 
neither the President nor Congress had the power to recon- 
struct a State government. The people within a State alone 
had the right to initiate and carry into effect measures for 
the rehabilitation of the deranged governmental machinery. 
It was the duty of the President under Article IV, Section 4, 
of the Constitution, to see that their efforts in this direction 
did not prove abortive by reason of domestic violence. 

The germs of this policy may be seen in the instructions 
sent to the military governors. It was more fully developed 
in the amnesty proclamation of Dec. 8, 1863. By the terms 
of this proclamation, a general pardon was granted to all 
" who directly or by implication had participated in the re- 
bellion, with certain exceptions specified, upon their taking 
an oath to henceforth support the Constitution of the 
United States, and abide by the proclamations of the Presi- 
dent and the acts of Congress in relation to slavery." It was 
further promised, " that whenever a number of persons in 
any of the rebel States, equal to not less than one tenth of the 
votes cast in such State in the presidential election of the 
year i860, each having taken the oath aforesaid, and not 
having violated it, and being a qualified voter by the elec- 

24 



THE RESTORATION OF CIVIL GOVERNMENT 2$ 

tion law of the State existing immediately before the so- 
called act of secession, and excluding all others, shall estab- 
lish a State government which shall be republican in form, 
and in nowise contravening said oath, such shall be recog- 
nized as the true government of the State." 

This was, substantially, Lincoln's plan for reconstruction. 
It was not carried out in any of the Southern States. In all, 
except Tennessee, it was succeeded by executive reconstruc- 
tion under Johnson, which was in turn supplanted by con- 
gressional reconstruction. In Tennessee an entirely original 
plan was adopted. This plan shut out from participation 
in the work of organizing civil government, all those who 
had taken part in secession. An oath of past loyalty was 
made the test of political capacity. In short, the restored 
civil government in Tennessee was based solely on that por- 
tion of its inhabitants that had remained loyal to the Union. 
These Union men, or Radicals as they chose to call them- 
selves, composed about one third of the population of the 
State, and represented about one fifth of the taxpayers. It 
will be the object of this chapter to trace the steps by which 
this small minority seized the reins of government and ex- 
ercised for three years absolute control of the State. 

After the fall of Fort Donelson, on February 15, 1862, 
the greater part of Tennessee soon came into the posses- 
sion of the Union army, president Lincoln immediately 
appointed Andrew Johnson military governor. Athough 
vested with almost unlimited powers, Governor Johnson 
had at first little opportunity for their exercise, as the Union 
army did not remain in peaceful possession of the State. 
Along the southern border raged the bloody battles of 
Shiloh, Chickamauga, and Missionary Ridge. 

By the fall of 1863, the tide of battle had rolled so far 
southward that the soil of Tennessee was at last free from 
contending armies. The time had now arrived for the res- 
toration of civil government. But Governor Johnson felt 



26 DISUNION AND RESTORATION 

secure in the exercise of his power only so long as it rested 
upon a military basis. He therefore seemed in no hurry to 
reorganize the State government. He contented himself 
with filling the vacant offices, most of which under the laws 
were elective, by the appointment of his political friends 
thereto. 

The leaders of the Union men in the State, the majority of 
whom were never in sympathy with Johnson, began to grow 
restive under his military dictatorship. 

In May, 1864, occurred Johnson's nomination for the Vice- 
Presidency. He naturally desired to obtain the electoral vote 
of his own State. A Convention was therefore called to 
meet in Nashville for the purpose of nominating an electoral 
ticket. The Union leaders seized the opportunity which the 
Convention presented for perfecting an organization of the 
Union party. A committee was appointed by the Conven- 
tion, and empowered to issue a call for a second Convention. 

The second Convention was called to meet in Nashville, 
Dec. 19, 1864. It failed to convene on the day appointed, 
as Nashville was at that time threatened by Hood's army. 
The defeat of the Confederate forces in the battle of Nash- 
ville removed the danger, and the Convention came together 
on the third day of January, 1865, 

The work of the Convention was summed up in the pass- 
age of one resolution.' The first section contained this 
statement of the authority under which it claimed to act : 
" Whereas the first article and the first section of the 
Declaration of Rights in the Constitution of the State 
of Tennessee declares, 'That all power is inherent in the 
people, and all free governments are founded on their au- 
thority, and instituted for their peace, safety, and happiness ; 
and that for the advancement of these ends they have at all 
times an inahenable and indefeasable right to alter, reform, 
or amend the governments as they may think proper,' We, 
' Laws of Tennessee, 1865, Introductory Documents, p. 3. 



THE RESTORATION OF CIVIL GOVERNMENT 2/ 

the people of Tennessee, in Convention assembled, do pro- 
pose the following alterations and amendments to the Con- 
stitution, which, when ratified by the sovereign loyal people 
shall be and constitute a permanent part of the Constitution 
of Tennessee." This assertion of constituent powers by the 
Convention was purely a revolutionary act. The Constitu- 
tion could be legally changed only in the manner prescribed 
by the Constitution itself. In the third section of the eleventh 
article, it provided that all amendments must originate with 
the State Legislature. In no sense could the Convention be 
held to represent the Legislature. It was therefore in the 
eyes of the law a body of private citizens. 

The second section of the resolution passed by the Con- 
vention contained the proposed amendments. The most 
important were : the abolition of slavery, the declaration of 
the invalidity of the secession acts, and an article giving 
the Legislature the power to determine the suffrage. It was 
further provided that these amendments should be submitted 
to a vote of the people, and if ratified by the majority of 
those voting, the military governor was ordered to hold 
an election for Governor and Legislature. All voters should 
be required to take the following oath : " I solemnly swear 
that I will henceforth support the Constitution of the 
United States, and defend it against the assaults of all its 
enemies ; that I am an active friend of the government of 
the United States, and the enemy of the so-called Confede- 
rate States ; that I ardently desire the suppression of the 
present rebellion against the United States; that I rejoice 
in the triumph of the armies and navies of the United States, 
and in the defeat of the armies, navies, and all other armed 
combinations of the so-called Confederate States; that I will 
cordially oppose all armistices or negotiations for peace with 
rebels in arms until the Constitution of the United States 
and all laws and proclamations made in pursuance thereof, 
shall be established over all the people of every State and 



28 DISUNION AND RESTORA TION 

territory embraced within the national Union; and that I 
will heartily aid and assist the loyal people in whatever 
measures may be adopted for the attainment of these ends • 
and further, that I take this oath freely and voluntarily and 
without mental reservation, so help me God." 

This test oath marks the first grave departure from Presi- 
dent Lincoln's plan. He had suggested a simple oath " to 
henceforth " support the Constitution on the principle, as he 
expressed in his message to Congress, that " that test is a 
sufificient one which accepts as sound whoever will make a 
sworn recantation of his former unsoundness." This test 
oath, framed by the Convention, went much further and 
virtually disfranchised all who had served in the Confederate 
army. 

The Convention completed its labors by nominating a 
candidate for Governor, and a general ticket for the Legisla- 
ture. It thus combined the functions of a political and 
constitutional convention. 

Governor Johnson now had no motive for delaying the 
reorganization of the State government, as it was only a 
month until his inauguration as Vice-President. He there- 
upon gave force to the action of the Convention by a proc- 
lam.ation ordering a vote of the people to be taken in the 
mode prescribed by the Convention. The election was held 
on February 22d, and resulted in 25,293 for, 48 against. 
On February 25th, Johnson issued a second proclamation 
declaring the amendment ratified, and ordering an election 
for Governor and Legislature. The second election occurred 
on the 4th of March. W. G. Brownlow, the candidate 
for Governor, received 23,352 votes against 35 scattering. 
The legislative candidates received the same number of 
votes as the election was by general ticket. 

In the presidential election of i860 the vote of the State 
was 145,000. Johnson therefore held that Tennessee had 
fulfilled the 10 per cent, requirement of Lincoln's amnesty 



THE RESTORATION OF CIVIL GOVERNMENT 29 

proclamation. He issued a final proclamation in which he 
attempted to set the stamp of legality upon the newly 
elected Governor and Legislature. 

The energies of the new State government were immedi- 
ately directed toward securing the continued ascendancy of 
the Union party. This was at first an easy matter, as one 
of the new amendments to the Constitution had given the 
Legislature the power of determining the suffrage qualifica- 
tions. 

The Legislature convened on the 2d of April. On the 
7th Brownlow was inaugurated. His message contained the 
following brief reference to the all-important question of 
the franchise : " While I would not recommend you to give 
way to the impulse of vengeance any more than to the ap- 
peals of sympathy and pity, I would urge you to guard the 
ballot-box faithfully and effectually against the approach of 
treason, no matter in what character it may come." ' 

Most of the Union leaders in the Legislature desired the 
absolute disfranchisement of the " rebels," but it was feared 
so extreme a measure would arouse hostility in Congress to 
seating the Representatives from Tennessee. A compromise 
bill, known as the Arnell BilV was finally passed. By its 
provisions the right to vote was restricted to the following 
persons : " White men over twenty-one years old, who were 
publicly known to have entertained unconditional Union 
sentiment from the outbreak of the Rebellion, or who ar- 
rived at age since March 4, 1866, and who had not been 
engaged in armed rebellion against the United States Gov- 
ernment, also those who had served in the Federal army, 
and been honorably discharged, those who had been con- 
scripted by force in the Confederate army, and were known 
to be Union men^ and all those who had voted at the elec- 
tion in March and February, 1865." All other persons were 
disfranchised. For all persons who had held civil or diplo- 
' Laws of Tennessee, 1865, 1-15. "^ Ibid., p. 32. 



30 DISUNION AND RESTORATION 

matic office under the Confederate Government, or who had 
held military offices above the ranks of captain in the Con- 
federate army, or lieutenant in the Confederate navy, also 
for those who had resigned from the Congress of the United 
States, or the army or navy of the United States, the 
term of disfranchisement was for fifteen years. For all 
other persons from whom the suffrage was withheld the 
disfranchisement was to last only four years. 

The first election to occur after the passage of the Arnell 
Franchise Law, was the congressional election of August 3, 
1865. All the candidates were Union men, but one set repre- 
sented the conservative element which opposed disfranchise- 
ment and tests oaths. The Radicals felt perfectly confident 
of defeating the Conservatives, if the provisions of the new 
law were carried out. But it soon became evident that the 
Radicals had much to fear both from open violation of the 
law, and secret intimidation of the voter. Governor Brown- 
low, on the loth of July, issued a proclamation declaring 
" that all who had banded together to defeat the franchise 
law would be dealt with as rebels." 

The election passed off without violence. On the loth 
of August, before all the returns were in, Governor Brown- 
low requested the clerks and sheriffs to give him information 
as to illegal voting. On the information thus received, he 
cast out the vote of twenty-five counties. Notwithstanding 
this action of the Governor, four of the Conservatives were 
elected. 

The August election demonstrated to the Union party the 
necessity of enacting a more efficient machinery for executing 
the election laws. On January 19, 1866, a new franchise bill 
was introduced in the Legislature.' It made the disfranchise- 
ment of the ex-Confederates perpetual. It also established 
the office of the Commissioner of Registration in each 
county, and required that certificates of registration issued 
' Acts of Tennessee, 1866-67, P- 26. 



THE RESTORATION OF CIVIL GOVERNMENT 3 1 

by these commissioners should be presented by every voter 
in all elections, municipal, county, and State. The power of 
appointing and removing these commissioners was given to 
the Governor. He was also authorized to cast out any regis- 
tration he considered illegal. This made him absolute judge 
of elections. The bill was passed May 3, 1866. It was 
amended in November so as to give the suffrage to the 
negro. The ascendancy of the Union party in Tennessee 
was now secured, so far as State statute could accomplish 
this result. 



CHAPTER V 

RECOGNITION BY CONGRESS 

The Radical leaders in Tennessee naturally expected that 
the readmission of the Representatives to their seats in Con- 
gress would immediately follow the restoration of the State 
government. Therefore, upon the assembling of the first 
session of the Thirty-ninth Congress, the full delegation from 
Tennessee was present on the floor, ready to answer to their 
names. When Mr. Edward McPherson, the clerk of the 
House, omitted the name of Tennessee along with the other 
Southern States from the preliminary roll-call, Mr. Horace 
Maynard created a dramatic scene by waving aloft his cer- 
tificate of election, and demanding recognition. In the 
discussion which followed the roll-call, the cause of Mr. 
Maynard was championed by Mr. Brooks, the leader of the 
Democratic minority. "If Mr. Maynard," he said, "is not 
a loyal man, and is not from a State in this Union, what man, 
then, is loyal? In the darkest and most doubtful period of 
the war, when an exile from his own State, I heard his elo- 
quent voice on the banks of the St. Lawrence rousing the 
people of my State to discharge their duties to their country." 
The action of Mr. McPherson was upheld by a vote of the 
House. 

This refusal to seat the Tennessee Representatives arose, 
partly on account of the failure to distinguish between the 
loyal government in Tennessee, and the so-called Johnson 
governments, but chiefly because the Republican leaders 
wished to delay action until a complete reconstruction policy 
could be mapped out. The Representatives continued, 
however, to press the claims of the State for recognition 

32 



RECOGNITION BY CONGRESS 33 

before the "Joint Committee of Fifteen," to which was 
referred all measures affecting the status of the Southern 
States. 

This Committee was just on the point of yielding, when 
the veto of the Freedman Bureau Bill occurred. The day 
after the veto, Mr. Stevens brought before the House, from 
the Committee of Fifteen, a "concurrent resolution con- 
cerning the insurrectionary States," as follows : " Be it 
resolved by the House of Representatives (the Senate con- 
curring), that in order to close agitation upon a question 
which seems likely to disturb the action of the Government, 
as well as to quiet the uncertainty which is agitating the 
minds of the people of the eleven States which have been 
declared to be in insurrection, no Senator or Representative 
shall be admitted to either branch of Congress, from any of 
the said States until Congress shall have declared such State 
entitled to such representation," A strong effort was made 
to exempt Tennessee from the provisions of the Resolution. 
Mr. Grider, a member of the Committee of Fifteen, offered, 
to that effect, a minority report as follows: "The minority 
of the Committee on Reconstruction, on the part of the 
House, beg leave to report that said committee have caused 
an inquiry to be made as to the condition and loyalty of 
Tennessee. There has been a large amount of evidence 
taken, a part of it conducing to show that at some localities 
occasionally there have been some irregularities and disaf- 
fection, yet the main direction and weight of the testimony 
are ample and conclusive to show that a great body of the 
people in said State are not only loyal and willing, but 
anxious to have and maintain amicable, sincere, and patri- 
otic relations with the General Government. Such being 
the state of facts, we offer the following resolution, to wit: 

''Resolved, That the State of Tennessee is entitled to 
representation in the Thirty-ninth Congress, and the repre- 
sentatives elected from and by said State are hereby ad- 



34 DISUNION AND RESTORA TION 

mitted to take their seats therein upon being qualified by- 
oath according to law." 

In speaking in opposition to this minority resolution, Mr. 
Stevens said : " I think I may say without impropriety, 
that until yesterday there was an investigation into the con- 
dition of Tennessee, to see whether by act of Congress we 
could admit that State to a condition of representation here, 
and admit its members to seats here, but since yesterday 
there has arisen a state of things which the committee deem 
puts it out of their power to proceed further without surren- 
dering a great principle, without the loss of all their dignity, 
without surrendering the rights of this body to the usurpation 
of another power." The " Concurrent Resolution," intro- 
duced by Mr. Stevens, was carried without amendment, so the 
readmission of Tennessee was again postponed indefinitely. 

Two months later, however, its readmission was fore- 
shadowed in a speech by Mr. Bingham on the Fourteenth 
Amendment. " I trust," he said, " that this amendment will 
pass this House, that the day will soon come when Tennes- 
see — loyal Tennessee — loyal in the very heart of the rebel- 
lion, her mountains and plains blasted by the very ravagers 
of war and stained with blood of her faithful children fallen 
in the great struggle for the maintenance of the Union, 
having already conformed her constitution and laws to every 
provision of this amendment, will at once, upon its sub- 
mission by Congress, irrevocably ratify it, and be, with- 
out further delay, represented in Congress by her loyal 
Representatives and Senators. Let that great example be 
set by Tennessee, and it will be worth a hundred thousand 
votes to the loyal people in the free North." 

The suggestion contained in this speech was promptly 
acted upon by the Radical government in Tennessee. On 
the 19th of June, the Fourteenth Amendment was ratified 
by the Legislature. Mr. Brownlow immediately sent the 
following telegram to Washington : 



RECOGNITION BY CONGRESS 35 

"Nashville, Tenn., Thursday, July i8. 

To Hon. E. M. Stanton, Sec. of War, 

Washington, D. C. 

" My compliments to the President. We have carried the 

Constitutional Amendment in the House. Vote 43 to 18; 

two of his tools refusing to vote. 

" W. G. Brownlow." 

On the same day the news of this ratification was re- 
ceived, Mr. Bingham introduced into the House the 
following resolution : 

" Joint resolution declaring Tennessee again entitled to 
Senators and Representatives in Congress. 

''Whereas, The State of Tennessee has in good faith rati- 
fied the article of amendment to the Constitution of the 
United States proposed by the Thirty-ninth Congress to the 
Legislatures of the several States, and has also shown, to 
the satisfaction of Congress, by the proper spirti of obedi- 
ence in the body of her people, her return to her due 
allegiance to the Government, laws, and authority of the 
United States; therefore, 

Be it resolved by the Senate and the House of Represen- 
tatives of the United States of America in Congress assem- 
bled, That the State of Tennessee is hereby restored to her 
former proper practical relation in the Union, and again en- 
titled to be represented by Senators and Representatives in 
Congress, duly elected and qualified, upon their taking the 
oaths of ofifice required by existing laws." 

In urging the immediate adoption of the resolution, Mr. 
Bingham declared that : " Inasmuch as Tennessee has con- 
formed to all our requirements ; inasmuch as she has, by a 
majority of her whole Legislature in each House, ratified the 
amendment in good faith ; inasmuch as she has of her own 
voluntary will conformed her constitution and laws to the 
Constitution and Laws of the United States ; inasmuch as 



36 DISUNION AND RESTORA TION 

she has by her fundamental law forever prohibited the 
assumption or payment of the rebel debt, or the enslave- 
ment of men ; inasmuch as she has by her own constitution 
declared that rebels shall not exercise any of the political 
power of the State or vote at elections ; and thereby giving 
the American people assurance of her determination to 
stand by this great measure of security for the future of the 
Republic, Tennessee is as much entitled to be represented 
here as any other State of the Union." 

The resolution was opposed by a few members on the 
ground that Tennessee had not, as yet, conferred the suffrage 
upon the negro. Mr. Boutwell offered an amendment pro- 
viding that Tennessee should not be readmitted until it had 
established an " equal and just system of suffrage." 

On June 20th the resolution passed the House, one hun- 
dred and twenty-five voting in the affirmative, and twelve in 
the negative. On the succeeding day, it came up for con- 
sideration in the Senate. Mr. Trumbull proposed, in the 
place of the preamble which had been framed by Mr. 
Bingham and passed by the House, the following substitute: 
" Whereas, In the year 1861, the government of the 
State of Tennessee was seized upon and taken possession of 
by persons in hostility to the United States, and the inhabi- 
tants of said State in pursuance of an act of Congress were de- 
clared to be in a state of insurrection against the United 
States, and whereas said State government can be restored 
to its former political relations in the Union only by the 
consent of the law-making power of the United States ; and 
whereas the people of said State did on the 22d of February, 
1865, by a large and popular vote adopt and ratify a consti- 
tution of government whereby slavery was abolished, and all 
ordinances and laws of secession and debts contracted under 
the same were declared void ; and whereas a State govern- 
ment has been organized under said Constitution, which has 
ratified the amendment to the Constitution of the United 



RECOGNITION BY CONGRESS 37 

States abolishing slavery, also the amendment proposed by 
the Thirty-ninth Congress, and has done other acts 
proclaiming and denoting loyalty ; Therefore, etc." 

Mr. Sherman opposed the substitution of this preamble on 
the ground that it would probably cause the President to 
veto the resolution. "These political dogmas," he said, 
" cannot receive the sanction of the President, and to insert 
them will only create delay, and postpone the admission of 
Tennessee." 

After a considerable discussion, the question being taken 
on the passage of the preamble as substituted by the Senate, 
together with the resolution of the House, resulted in 
twenty-eight votes in the afifirmative, and four in the nega- 
tive. The House promptly agreed to the amendment of 
the Senate, and the joint resolution was sent to the 
President for his approval. 

The President approved the joint resolution, but sent a 
message to the House which was in the nature of a protest 
against the opinions expressed in the preamble. After 
giving at length his objections to the preamble, the 
President said : 

" Earnestly desiring to remove every cause of further 
delay, whether real or imaginary, on the part of Congress to 
the admission to their seats of loyal Senators and Represen- 
tatives from the State of Tennessee, I have, notwithstanding 
the anomalous character of this proceeding, affixed my sig- 
nature to the resolution. My approval, however, is not to 
be construed as an acknowledgment of the right of Congress 
to pass laws, preliminary to the admission of duly qualified 
representatives from any of the States. Neither is it to be 
construed as committing me to all the statements made in 
t;he preamble, some of which are, in my opinion, without 
foundation in fact, especially the assertion that the State of 
Tennessee has ratified the amendment to the Constitution 
of the United States proposed by the Thirty-ninth Congress. 



38 DISUNION AND RESTORATION 

No official notice of such ratification has been received by 
the Executive, or filed in the Department of State ; on the 
contrary, unofficial information from most reliable sources, 
induces the belief that the amendment has not yet been 
constitutionally sanctioned by the Legislature of Tennessee. 
The right of each House, under the Constitution, to judge 
of the elections, returns, and qualifications of its own mem- 
bers is undoubted, and my approval or disapproval of the 
resolution could not in the slightest degree increase or 
diminish the authority in this respect conferred upon the 
two branches of Congress." 



CHAPTER VI 

TENNESSEE AND THE NEW AMENDMENTS 

The deed of cession of Tennessee to the United States 
by North Carolina contained the provision " that no regula- 
tion made or to be made by Congress shall tend to emanci- 
pate slaves." The constitution under which Tennessee was 
admitted into the Union also recognized slavery by the 
use of the term " freeman " throughout the bill of rights. 
It was, however, exceedingly liberal in regard to the suffrage, 
conferring it upon every " freeman of the age of twenty-one 
years, and upwards." Under this provision, free negroes 
were allowed to vote. 

About 1830, there developed a strong movement in favor 
of emancipation. At Jonesborough was established the 
first abolition newspaper ever published in America. But 
this emancipation sentiment had entirely disappeared by 
i860. Even in East Tennessee, the most extreme opponents 
of secession were firm believers in slavery. 

The Emancipation Proclamation of January i, 1863, did 
not include Tennessee within its provisions. Slavery, there- 
fore continued to exist as a legal institution until abolished 
by an amendment to the State constitution. This amend- 
ment, as we have seen, was framed by the Radical Conven- 
tion of 1865. In April, of the same year, Gov. Brownlow 
laid before the Legislature a joint resolution of Congress 
containing the proposed Thirteenth Amendment. It was 
promptly ratified. 

In his initial message. Gov. Brownlow discussed, at con- 
siderable length, the race problem. He sought to impress 
upon the Legislature, " that some legislation was neces- 

39 



40 DISUNION AND RESTORA TION 

sary for the protection, government, and control of the 
emancipated slave." The Legislature did not enter upon 
this work immediately. It was not till May ii, 1866, that 
a bill was passed entitled, "An act to define the term, * A 
Person of Color,' and to declare the rights of such persons." 

The first section of this act provided that under the term 
" Person of Color " should be included all " negroes, 
mulatoes, meztigsoes, and their descendants having African 
blood," The second section declared : " That persons of 
color have the right to make and enforce contracts, to sue 
and be sued, to be parties and give evidence, and have full 
and equal benefit of all laws and proceedings for the security 
of person and estate, and shall not be subject to any other 
or different punishment, pains, or penalty for the commission 
of any act or offence than such as are prescribed for white 
persons committing like acts or offences." By the fifth sec- 
tion, slave marriages were legalized. The last section declared 
that nothing in the act should be so construed as to admit 
persons of color to serve on the jury, or to require the 
education of colored and white children in the same school. 

Soon after the passage of this act occurred the great 
struggle over the ratification of the Fourteenth Amendment. 
At the time of its submission by Congress to the State the 
Legislature was not in session. Gov. Brownlow, therefore, 
issued a call for an extra session to convene on July 4th. 
The members were very slow in assembling. It became 
apparent that the opponents of the amendment in the 
Lower House would seek to defeat its ratification by pre- 
venting a quorum, which was fixed by the constitution at 
two thirds of all the members. Upon the first roll-call only 
forty-two members answered to their names. At the third 
meeting this list was increased to fifty-four, but it still fell 
short two votes of the necessary two thirds. The Sergeant- 
at-arms was, therefore, instructed to arrest the absentees, and 
bring them by force to the floor of the House. He did not 



TENNESSEE AND THE NEW AMENDMENTS 4 1 

find this an easy task, as the refractory members sought by 
every means possible to elude his search. 

The following extract from his report gives a glimpse of 
the ludicrous game of hide-and-seek enacted in different 
parts of the State : 

" I have the honor to report that in compliance with in- 
struction that I should proceed to Hamilton County, and 
arrest George B. Foster, member of the House of Repre- 
sentatives, I proceeded to Chattanooga on Friday the 13th, 
1866, arriving on the morning of the fourteenth, at 2 o'clock ; 
communicated with the Sergeant of the Metropolitan Police, 
procured a wagon, and, in company with Sergeant Bently, 
proceeded to the summit of Lookout Mountain, to the resi- 
dence of Mr. Foster, and was there informed by his family 
that he had ridden out in the country ; carefully watched 
the premises without result until evening; was informed 
that he would be home that night ; lay up on the mountain 
all night, awaiting his return. Mr. Foster did not return. 
I am satisfied that his family on the mountain, at the time 
of my leaving them, did not positively know of his where- 
abouts, although there was a manifest intention on their 
part to mislead as to his locality. I found it impossible to 
conceal my business, and destination, — the resolution of the 
House and order for the arrest of the absentees having 
been published and otherwise communicated." ' 

Several of the members attempted to resign, but Governor 
Brownlow refused to accept their resignations. He sent 
the following response to Mr. Dunnaway, representative 
from Bedford County: "Sir, — As it is evident the design of 
your resignation is to reduce the House below a quorum and 
to break up the Legislature, the same is not accepted." 

Exasperated at the repeated failure of the Sergeant-at- 
arms to arrest the hiding members, Governor Brownlow, on 
the 14th of July, applied to General Thomas for military 

' Acts of Tennessee, Extra Session, 1866. 



42 DISUNION AND RESTORA TION 

assistance. This request was referred to the Secretary of 
War, Mr. Stanton, who replied :" That the duty of the 
United States forces is not to interfere in any way in the 
controversies between the political authorities of the State, 
and Gen. Thomas will strictly refrain from any interfer- 
ence between them." 

The deadlock was finally broken on the 19th of July, in a 
somewhat extraordinary manner. Two members, arrested 
by the Sergeant-at-arms, were brought to the Capitol, and 
placed in a committee-room communicating with the hall 
of the House. A motion was then passed that they " be 
invited and required to take their seats within the bar of 
the House." The two members refused to come out of the 
committee and continued to remain silent when their names 
were called. The Speaker thereupon declared that no 
quorum was present. An appeal was taken from this ruling, 
and it was reversed. The House then proceeded to a vote 
upon the amendment ; and it was declared duly ratified, 
forty-three votes having been cast in the af^rmative, and 
eleven in the negative. 

In the meantime, Mr. Williams, one of the arrested mem- 
bers, applied for and obtained a writ of habeas corpus. It 
was made returnable to Thomas N, Frazier, Judge of the 
Criminal Court of Davidson County, who, upon the hearing 
of the case, discharged Mr. Williams from the custody of 
the Sergeant-at-arms. On account of this decision, the 
House of Representatives preferred articles of impeach, 
ment against Judge Frazier. He was tried by the Senate, 
sitting as a Court of Impeachment. It sustained the ar- 
ticles of impeachment, and deposed Judge Frazier from 
office. He was also forever disqualified from holding any 
office of profit or trust in the State. His disqualifications 
were however removed by the Constitutional Convention 
of 1870, and he was afterward re-elected Criminal Judge. 

The Fifteenth Amendment was submitted to Tennessee in 



TENNESSEE AND THE NEW AMENDMENTS 43 

1869, just before the close of the radical era. The suffrage 
had been conferred upon the negro by an act of the Legis- 
lature of the previous year, but it was known that the whole 
question would be reopened by the Constitutional Conven- 
tion which had just been called. The; Legislature, there- 
fore, refused to take final action on the amendment. It was 
referred to the Committee on Federal Relations, from which 
it was never reported. 



CHAPTER VII 

FINANCIAL ADMINISTRATION OF THE RADICAL 
GOVERNMENT 

The joint resolution of July 24, 1866, completed, so far 
as Congress was concerned, the restoration of civil govern- 
ment in Tennessee. Her Senators and Representatives were 
admitted to their seats, and the State, to all intents and pur- 
poses, was restored to the same position it had occupied 
prior to the attempted withdrawal in 1861. 

The political basis of the restored government was, as we 
have pointed out, the loyal people of the State. They 
consisted mainly of four elements, namely, the inhabitants 
of the small towns and the upland farms of East Tennessee, 
and poor whites, or " white trash," as they were commonly 
called, scattered throughout the State, a few " old-line " 
Whigs in West and Middle Tennessee, and lastly the negro 
and the carpetbagger. This ruling minority was, therefore, 
neither an aristocracy of wealth, intelligence, nor social posi- 
tion. It could not be expected that the management of 
public affairs by such hands would be just and conservative. 
From the beginning it showed a tendency toward reckless 
expenditures and an entire disregard of property rights. Mr. 
Brownlow, in his first message to the Legislature, advised a 
general increase in the salaries of State officials. This ad- 
vice came at a time when the finances were at a low ebb, 
and the whole industrial and agricultural interests of the 
community were thoroughly demoralized. Nevertheless, the 
Legislature was only too ready to carry these suggestions 
of Governor Brownlow into execution. They passed a bill 
increasing the salaries of the supreme judges from $2000 to 

44 



RADICAL FINANCIAL ADMINISTRATION 45 

$5CX)0 a year. This was followed by other bills increasing 
the salaries of the various State officials. This resulted 
in an enormous increase in the current expenditures of the 
State. 

The whole expenses of the State government for the 
years 185 1 to 1861, inclusive, had been about $6,500,000. 
The entire expenses during the Brownlow administration, 
which lasted only three years and a half, were $7,301,352. 
The taxes in 1868 were fourfold greater than in 1861, 
yet on the former date, the Comptroller announced in his 
report to the Legislature that the State was on the verge of 
bankruptcy. 

But the most troublesome legacy Mr. Brownlow left the 
people of Tennessee was an increase in the State debt of 
$21,647,000. 

By an Act of the Legislature in 1852, known as the Gen- 
eral Internal Improvement Law, the Governor had been 
empowered to issue State bonds to the amount of $8000 
per mile in aid of railroad companies, upon the following 
conditions: '' i. That the company shall first secure bona- 
fide subscriptions to its capital stock to an amount sufficient 
to grade, bridge, and prepare for the inner rails the whole 
extent of the main trunk line proposed to be constructed ; 
2. That it be shown by the company to the Governor that 
the said subscriptions are good and solvent ; 3. That the 
company shall have graded, bridged, and made ready to put 
down the necessary timbers, for the reception of rails, and 
fully completed a specified number of miles at either ter- 
minus in a good and substantial manner, with good material 
for putting the iron rails and equipments in place, and that 
the State shall be given a first-mortgage lien on their 
property ; 4. That the Governor shall be notified of these 
facts by the written affidavits of the Chief Engineers and 
President of the Company, together with the written affi- 
davit of a competent engineer appointed by the Governor to 



46 DISUNION AND RESTORATION 

examine the specified section ; and shall be furnished with 
an affidavit of the President of the Company, and a resolu- 
tion of a majority of its Board of Directors for the time 
being, pledging that the bonds issued to it shall not be 
used for any other purpose than that of procuring the iron 
rails, chairs, spikes, and equipments, and for putting down 
the iron rails on the specified section for which they are 
issued ; and that the President shall deposit in the office of 
the Secretary of State a full and accurate list of all the 
stockholders, with the sum subscribed by each and every 
stockholder." 

Under the provisions of this act, there had been issued, 
prior to the war, bonds amounting to $14,841,000. In the 
main, the conditions enumerated in the act, were fairly com- 
plied with, and the State protected from all loss. 

The close of the war left the railroads, like every other in- 
dustrial interest in the State, in a thoroughly demoralized 
condition. Upon the first arrival of the Federal troops, they 
had been seized by the Government and used for military 
purposes. A great part of the rolling stock had been de- 
stroyed, and many of the bridges and buildings burnt. 

As soon as the restored government was in working 
order, the railroad interests turned to the State treasury for 
relief. This was obtained through the passage of a number 
of bills, which professed to be based upon the Act of 1852. 
They were known as Omnibus bills, and under their pro- 
visions bonds to the amount of $14,393,000 were issued. 

The means resorted to to secure the passage of the 
Omnibus bills furnished the greatest scandals of the restor- 
ation period. They are vividly set forth in the following 
extract from the Report of the Committee of Investigation 
appointed by the Legislature of 1879: 

" Many corporate presidents, agents, and representatives 
came to Nashville to attend the sittings of the Legislature. 
All known influences were used upon the supposed repre- 



RADICAL FINANCIAL ADMINISTRATION 47 

sentatives of the people. From the pulpit to the bagnio, 
recruits were gathered for the assault on the treasury of the 
State. Fine brandy by the barrel was on hand to fire thirst 
and muddle the brain, and first-class suits of clothing to 
capture the vanity or avarice of the gay or needy. Money, 
the proceeds of the bonds issued by the State, for specific 
purpose to these men, was here in abundance, and it was 
used. Take one example : A man came to the State. He 
was appointed Receiver of two short insolvent railroads at 
a salary of $5000. He was appointed Commissioner of 
Registration for Franklin County. He sent his Superin- 
tendent to the Legislature of 1867 as a member. That 
member, in conjunction with a certain Senator, was active 
in procuring ' State aid.' The Commissioner and Receiver 
let out contracts on his road, and was a silent member. The 
proof shows that this Receiver, this member, and this Senator 
formed a conspiracy to defraud the State. About a million 
dollars of bonds issued under the Act of 1867 went into the 
hands of the Receiver. Take another: A president of a 
railroad would sell bonds and apply a portion of the pro- 
ceeds in corrupt efforts to get more bonds. They got bonds 
for roads that had never been surveyed and located. One 
railroad president says that he had great influence with the 
Governor, that another railroad president wanted bonds and 
desired his services with said Governor, that he got them, 
that, in addition to pay directly for his services and influences 
with the Governor, he was to have control of a portion of 
the bonds obtained to use as margin in stock speculations in 
New York. They got 885 bonds in New York. This man 
of influence with the Governor further says that he and 
the other president were partners in stock speculation, 
and used the bonds obtained from the State in these 
speculations." 

When the Democrats regained control of the State, the 
settlement of the State debt, which had been so greatly 



48 DISUNION AND RESTORATION 

increased by the Brownlow Administration, proved a most 
perplexing question. It became an apple of political discord, 
and retarded the industrial and commercial regeneration of 
the State. It disrupted the Democratic party into three 
factions. A few of the most prominent leaders desired to 
see the State's credit preserved by paying the bonds in full. 
A still larger number, while recognizing the validity of the 
bonds, conscientiously believed that the State, on account of 
the amount of the debt, and the demoralized business condi- 
tions resulting from the war, would be unable to meet its just 
obligations. They therefore favored some agreement with 
the bondholders, whereby the debt could be scaled without 
inflicting dishonor upon the State. A third faction was 
for open repudiation. They contended that the bonds were 
illegal on two grounds, first, they had been issued in direct 
violation of the conditions precedent laid down in the 
Internal Improvement Act of 1852, and its amendments; 
secondly, the Brownlow Administration, which had issued 
the bonds, did not represent the State, it was a mere interim 
of usurpation and revolutionary government. While for 
purposes of convenience its acts, which affected merely 
private rights, should not be disturbed, nevertheless it 
could not pledge the credit of the State. 

In 1873 a Funding Act was passed by the Legislature. It 
provided that all past due coupons and bonds might be 
funded into new bonds bearing interest at six per cent., re- 
deemable after July i, 1884, and payable July i, 1914. 
Coupons on the new bonds were payable on January and 
July of each year, beginning with July, 1874. The question 
as to the validity of the Brownlow bonds was avoided by 
inserting a provision that only " bonds legally issued should 
be funded." But the State ofificials ignored this provision 
by funding all the bonds that were presented. 

This Funding Act of 1873 proved a failure. The State 
was unable to meet its interest on the new bonds. A series 



RADICAL FINANCIAL ADMINISTRATION 49 

of bad crops increased the difficulty. The assessment 
returns for 1874, as compared with those of 1873, exhibited 
a decrease of $18,556,173. 

On January i, 1877, the arrears of interest amounted to 
$1,570,646. It now became apparent to the bondholders 
that they must either effect some compromise with the 
State, or run the risk of losing the entire debt. They, 
therefore, entered into personal communications with the 
Governor, and signified to him their willingness to com- 
promise. Their communications were laid before the Legis- 
lature, and it adopted on January 26, 1877, the following 
resolution : 

" Whereas, The General Assembly has with pleasure 
received, through the message of his Excellency the Gov- 
ernor, the communications of certain gentlemen, holders of 
bonds of the State, and representatives of holders of bonds, 
asking for a conference looking to a permanent and equita- 
ble adjustment and compromise of the claims held by them 
against the State ; therefore, be it 

" Resolved, By the General Assembly, that the Governor 
be requested to communicate by telegram, or by letter, 
with the gentlemen holding securities of the State, men- 
tioned in his message, and request them to submit, on the 
earliest day possible, through him, to the General Assembly 
any proposition of adjustment and compromise, which they 
may desire." 

As the result of this resolution, a committee of the Legis- 
lature and a committee of the bondholders met and agreed 
to the following proposition : " That arrearages of interest 
to July I, 1877, be added to the bonds, and that new ones 
for sixty per cent, of the total amount be issued, made to 
bear interest at six per cent., and to fall due in thirty years." 
It was naturally expected that the Legislature would 
ratify the action of its committee. Much to the surprise of 
every one concerned, it not only rejected the proposition, 



50 DISUNION AND RESTORATION 

but decreased the tax rate from forty to ten cents per hun- 
dred dollars, and thus made the payment of interest abso- 
lutely impossible. 

Later in the year the bondholders presented a second 
proposition, in which they agreed to a scaling of the debt 
fifty per cent., but this was also rejected by the Legislature. 

In 1879 3- committee was appointed by both Houses of 
the Legislature to investigate and report upon the State debt. 
This committee, after taking a great amount of evidence, 
presented an elaborate report. Acting upon this report the 
Legislature passed a second bill, March 31st. It provided 
for the issue of bonds bearing four per cent, interest to be 
exchanged for outstanding bonds with the interest accrued 
thereon, at the rate of fifty per cent, on the dollar. It was 
not to become a law until approved by a vote of the people, 
and two thirds of the bondholders. The consent of the 
bondholders was readily obtained, but the measure was de- 
feated at the polls. 

A settlement of the debt now seemed hopeless. It was 
the chief issue in the gubernatorial campaign of 1880. The 
divisions of the Democratic party resulted in the election of 
the Republican candidate, Alvin Hawkins. The newly 
elected Legislature was also favorable to the bondholders. 
A bill was passed which provided for the funding of the 
outstanding debt at par, the new bonds to bear interest at 
three per cent., and the coupons to be receivable for taxes. 
The bill was signed by the Governor, and went into effect 
in April. It was regarded as a great triumph for the bond- 
holders, but their rejoicing was short-lived. In a test case 
the courts decided the law unconstitutional, on the ground 
that the Legislature could not make a valid contract in which 
the coupons should be receivable for taxes for ninety-nine 
years. This decision reopened the whole question. 

The defeat which the Democrats had suffered in 1880 
served to unite them in 1882. Their candidate, W. B. 



RADICAL FINANCIAL ADMINISTRATION 51 

Bate, was elected Governor. In his message to the Legis- 
lature, Governor Bate marked out a plan for the settlement 
of the debt which was finally adopted, by an act passed 
March 15, 1883. This act declares: "That the State will 
pay in full the bonds held by Mrs. James K. Polk, and 
all bonds held by educational, literary, and charitable in- 
stitutions in the State ; that it will pay in discharge of 
its just obligations, what is known as the State debt proper 
in full, less war interest ; and that in compromise of the re- 
mainder of the debt, known as the railroad debt, it will pay 
one half of the principal and accrued interest by issuing 
therefor bonds of the State bearing interest at the rate of 
three per cent, per annum." 



CHAPTER VIII 

RADICAL MUNICIPAL ADMINISTRATION 

The "carnival of crime and corruption" described in the 
preceding chapter was not confined to the Legislature. 
Similar scenes were enacted in almost every county and 
city in the State. As the suffrage limitations placed upon 
the ex-Confederates applied to all elections, the Radicals 
were in complete control of these local governments. The 
large municipalities, such as Memphis, Nashville, Chat- 
tanooga, and Knoxville were the greatest sufferers from the 
rule of irresponsible and corrupt officials. 

In 1867, a carpetbagger, by the name of Alden, had suc- 
ceeded in being elected Mayor of Nashville. Having filled 
the city council with his political followers, most of whom 
were non-property-holders, he entered upon a course of 
open and systematic public plunder, which made even the 
State administration stand aghast. The city treasury was 
soon drained. The tax rate was enormously increased ; 
but as this did not suffice, checks, warrants, and due 
bills, made out in the name of the city, and payable to 
bearer, were sold to street shavers of notes at any price 
they could bring. Bonds were also issued. As these evi- 
dences of indebtedness multiplied, the market quotations 
for them declined. 

In the face of this wholesale corruption, Alden and his 
associates were re-elected. It now became evident that, 
unless some heroic measure was resorted to, the entire 
property of the city would be confiscated by their rapacity. 
A tax-payers association was formed, which began a cam- 
paign of public agitation. Public meetings were held in 

52 



RADICAL MUNICIPAL ADMINISTRATION 53 

various parts of the city, and resolutions were adopted de- 
nouncing the " Alden ring " in the most scathing terms. 

It was finally decided to seek relief through the courts. 
All the judges throughout the State were Radical, but in 
striking contrast with all the other officials of the Radical 
regime, they were men of unquestioned integrity, and, for 
the most part, lawyers of high standing. They had dis- 
played great independence in interpreting the franchise laws, 
and in curtailing, as far as possible, the excessive use of the 
military power. Mr. Thornburg, the defeated candidate for 
mayor, filed a bill in the Chancery Court of Davidson 
County, in which he alleged that the city administration was 
inefficient, that its members were guilty of fraud and cor- 
ruption, and that of right their offices were vacant because 
they were not owners of real estate, as required by law. He 
therefore prayed that the city officials be enjoined from the 
further issuance of checks and notes, and that they be 
declared usurpers and turned out of office, and that a 
receiver be appointed to take charge of the affairs of the cor- 
poration. Pending the coming in of the answer of the de- 
fendants, and the final decision of the case. Chancellor 
Shackelford granted a temporary injunction restraining the 
mayor and the city council from receiving any salary or per- 
quisites of office. On December 7th, final decision was 
rendered, the Chancellor using the following language: "I 
am of the opinion that the complainants are not entitled to 
the injunction or the receiver prayed for, and the application 
is therefore refused." 

In May, 1869, Col. A. S. Colyar, editor of the Unio7i and 
American, and one of the most distinguished lawyers in the 
South, made a thorough examination of the city's books and 
records. At a mass-meeting of the citizens, he made the 
most startling disclosure in regard to the extravagance and 
corruption uncovered by that investigation. He declared 
that the city was in the hands of thieves, and expressed the 



54 DISUNION AND RES TOR A TION 

opinion that there was not a judge on the bench of Tennes- 
see who would refuse to grant relief. On June ist, he filed 
a bill at Gallatin, Tenn., before Charles Smith, Chancellor 
of the Seventh Chancery Division, 

The bill was brought " in the name of the State in the 
relation of 466 citizens in behalf of themselves and others 
against the mayor, and the city council, the city treasurer, 
revenue collector, and others." It prayed " that further 
speculation in checks be enjoined ; that no more checks be 
issued and no more received until, on the one hand, the 
right of the city to issue them should be accurately defined,^ 
and until, on the other, the validity of outstanding checks 
should be determined ; that the corporation officers wha 
were defendants in the case, be compelled to account for 
money made by speculation in the means and credit of the 
city ; and lastly, that a receiver of known financial ability, 
with good credit and good reputation, be appointed with 
full power to control the finances of the city and make con- 
tracts so as to save the city from ruin," 

The terrible condition of the city was set forth at length 
in the bill. It was alleged, among other things, that 
$1,323,668 in checks had been issued, $759,000 of which 
were without authority of law, while much of the remainder 
was for illegal purposes. The most exorbitant rates of 
interest were paid, in some cases as much as 100^. Failing 
to meet its maturing obligations, the creditors of the city 
were resorting to the courts, and the city's property was 
being sold to satisfy them. 

After an elaborate [argument of the case, in which the 
defendants were represented by eminent lawyers, Chancellor 
Smith granted the prayer of the petitioners. Mr. John M. 
Bass was appointed receiver. After furnishing a bond of 
$500,000, he entered upon the receivership, June 28th, On 
the following month, a motion was made by the deposed 
officials, in the Nashville Chancery Division, to have the 



RADICAL MUNICIPAL ADMINISTRATION 55 

receivership dissolved. The motion came up for hearing 
before Judge Edwin H. East, the successor of Chancellor 
Shackelford. Judge East had been the private secretary 
of President Johnson, and had taken a leading part in the 
reorganization of the State. 

In arguing against the motion to dissolve, Col. Colyar 
took the ground that a municipal corporation was not 
a political body, but simply a business corporation whose 
officers were amenable to the courts for the proper dis- 
charge of their functions. Judge East concurred in this 
view, and upheld the receivership. In his opinion, he used 
the following language : " The functions of a municipality 
are twofold : first, political, discretionary, legislative ; 
secondly, ministerial. While acting within the sphere of 
the former, they are exempt from liability inasmuch as the 
corporation is a part of the government, to that extent, and 
its ofificers are to the same extent public ofificers, and as 
such entitled to the protection of this principle ; but within 
the sphere of the latter (ministerial duties), they drop the 
badge of governmental ofificers, and become, as it were, the 
representatives of a private corporation in the exercise of 
private functions. The distinction between these legislative 
powers which it holds for public purposes as a part of the 
government of the country, and those public franchises 
which belong to it as creation of law, is well taken." 

The receivership was of short duration. In August the 
regular city election occurred. Mr. Morris, a wealthy 
citizen, was elected mayor. Immediately after the election, 
the affairs of the city were again placed in the hands of its 
ordinary officials. 

Several years after the occurrence of these extraordinary 
proceedings, Col. Colyar, in a speech delivered at Buffalo, 
N. Y., explained the legal theory on which he placed the 
application for the receivership. " I took the ground," he 
said, " that, while in England, cities were in a sense political, 



$6 DISUNION AND RESTORATION 

because in the creation of the House of Commons, the cities 
and boroughs had in part organized it, in the time of 
Edward I., and to this day, as cities and boroughs, they 
elect members to the House of Commons ; but that in this 
country, our cities have no such political status, and that in 
nowise are they separate from the balance of the com- 
munity in politics, and therefore our cities are not political 
bodies, and that the delegation of a part of a State's sov- 
ereignty is a fiction, and the management of a city is a mere 
trust." 



CHAPTER IX 

KU-KLUX OUTRAGES 

It does not fall within the limits of our subject to go into 
the general history of Ku-Klux Klan. This mysterious or- 
ganization originated in Tennessee, but it soon spread be- 
yond the borders of the State, and became the organ of all 
those who believed in resorting to violent measures to 
secure the emancipation of the Southern States from negro 
and carpetbag domination. Its history, therefore, belongs 
under the general history of Reconstruction. Nevertheless, 
the study of the civil disturbances in Tennessee resulting 
from the war would indeed be incomplete without some 
account of the operation of the Ku-Klux within the borders 
of the State. It formed the chief occasion for interferences 
with civil liberty, as well as for congressional legislation, 
which rendered the Radical goverr^^ent so hateful in the 
eyes of the ex-Confederates. 

The first of^cial reference to disturbances of an extraordi- 
nary character is found in Governor Brownlow's first message 
to the Legislature. In this, he calls the attention of the 
Legislature to " the roving bands of guerrillas and squads of 
robbers and murderers who frequent those counties remote 
from the military forces. " He recommended that the 
criminal law of the State be so revised as to make house- 
stealing, and house-breaking, and highway robbery punish- 
able with death. Acting upon his recommendations, the 
Legislature, in May, 1865, passed a bill to punish "all armed 
Prowlers, Guerrillas, Brigands, and Highway Robbers." But 
as yet there were no indications, either in the message of 
the Governor or the action of the Legislature, that these 
early disturbances were of a political character. 

57 



58 DISUNION AND RESTORATION 

The Ku-Klux Klan did not come into existence until the 
following year. The little town of Pulaski, in Giles County, 
claims the doubtful honor of being its birthplace. It seems 
to have originated with a coterie of young men, who banded 
together for the purpose of obtaining amusement by playing 
upon the superstitious fancies of the negroes. They organ- 
ized themselves into a lodge, and adopted a fantastic cere- 
mony and ritual. Their meetings were held at night, and 
they usually came together mounted on horseback, and 
wearing hideous disguises. They frightened the negroes by 
telling them horrible ghost stories. 

It was quickly seen that the measures adopted purely for 
amusement could be turned into practical use in controlling 
the negro. The conditions were ripe all over the South for 
such an organization, so it spread like wildfire. Lodges 
sprang up in all parts of the Southern States, with the pos- 
sible exception of Virginia. A loose bond of union was 
formed between them, but in different localities they as- 
sumed various names, such as " The Pale Faces," " The 
Invisible Empire," " The Brotherhood." They were all 
finally denominated "The Ku-Klux Klan," 

Somewhat antedating the Ku-Klux Klan, and almost 
equally rapid in growth, were the Union secret societies. 
They also bore various names, the most popular being 
** The Loyal League " and " The Union League of Amer- 
ica." They were devoid of any fantastic features, and did 
not, as a rule, resort to violent measures, but their object was 
the same as the rival organization, namely, to secure political 
control of the negro. 

In the spring of 1867, the Radical newspapers of Knox- 
ville, Nashville, and Memphis commenced to be filled with 
reports of outrages committed upon negroes and Union men. 
Upon investigation, these reports oftentimes turned out 
to be either wholly untrue or greatly exaggerated, but they 
served to throw the Radical party into a state of intense 



KU-KLUX OUTRAGES 59 

excitement. Their leaders believed, or professed to believe, 
that another general insurrection was threatened. Acting 
under this conviction, the Legislature passed a bill on the 
twentieth of February, 1867, to equip and call into active ser- 
vice, under the absolute command of the Governor, a State 
Guard to be composed solely of Union men. It also passed 
a joint resolution requesting the Governor to " apply to 
General Thomas, the commander of the department, for a 
sufificient force of United States soldiers to keep the peace 
and restore order and quiet in our State. " ' In response to 
this application several regiments were furnished by General 
Thomas, but he cautioned that they should be used only in 
aid of the civil authority. 

These Ku-Klux outrages followed closely upon the pass- 
age of the Arnell Franchise Law. This bill, as we have 
pointed out, made the political disabilities of the ex-Con- 
federate absolute and perpetual. It destroyed the last hope 
of regaining political control of the State, through legal and 
constitutional means. As a natural result, public opinion 
commenced to tolerate acts of violence which till then had 
been strongly condemned. The best men of the com- 
munities, while they did not take active part in the Ku- 
Klux movement, gave it their approval by a policy of 
acquiescence. Juries refused to commit, even upon the 
clearest evidence, persons accused of offences against negroes 
or Union men. 

A crisis was reached in the spring of 1868. Mr. S. M. 
Arnell, the framer of the election law and Congressman 
from the Eighth District, was made the object of a Ku-Klux 
raid. Having narrowly escaped hanging through flight and 
concealment, he sent the following dispatch to the Gover- 
nor: " The Ku-Klux searched the train for me last night, 
pistols and rope in hand. Empower me to call upon the 
military here, if necessary in your name, to suppress all 
' Acts of Tennessee, 1867-68, p. 22. 



6o DISUNION AND RESTORATION 

armed and masked parties in this vicinity. I propose to 
fight it out." 

Upon the receipt of this dispatch, Governor Brownlow 
made a second request for federal troops. This time he re- 
ceived an unfavorable response. General Thomas informed 
him that " the State of Tennessee, being in full exercise of 
the civil functions of a State, the military authority of the 
United States cannot legally interfere except in aid and sup- 
port of the civil authority. For these purposes troops have 
been sent to various locations. These details, together with 
the present demand for troops to assist the United States 
of^cers in collecting revenue, have so exhausted the forces at 
my command as to prevent the complying with your 
request to send companies to the counties named." 

Governor Brownlow now had recourse to an extra session 
of the Legislature. His message was couched in the most 
violent language. " The rebel element of the State," he 
said, " were secretly arming themselves, and perfecting a 
military organization, known as the Ku-Klux Klan, com- 
posed of ex-rebel soldiers, and those in sympathy with 
them, thus violating their paroles at the time of their sur- 
render, and violating the laws of the State, and plotting and 
planning mischief in every respect. 

" These men have been arming and organizing for a year 
past, with an eye to the overthrow of the State government, 
and, ultimately, to carrying the State in the presidential 
election. Organized upon the same basis, and having the 
same dark designs in view that found a fit culmination in 
Booth's assassination of Abraham Lincoln, it works in secret 
with signs, symbols, and pass-words, hatching plans to scatter 
anarchyand permanent disorder wherever it may have an exist- 
ence. I recommend, most emphatically, that these organized 
bands of assassins and robbers be declared outlaws by special 
Legislature, and punished with death wherever found." ' 
' Acts of Tennessee, Extra Session, 1868; 



KU-KLUX OUTRAGES 6 1 

The violent language of the message aroused the greatest 
alarm among the Democratic leaders of the State. They 
feared that if the measures recommended by the Governor 
were adopted, civil war would indeed result. A meeting 
was held at Nashville in August, and a memorial to the 
Legislature was framed, by the following men, all of whom 
had been generals in the Confederate army: N. B. Forrest, 
B. F. Cheatham, W. B. Bate, J. C. Brown, Bushrod John- 
son, Gideon J. Pillow, W. A. Quarles, S. R. Anderson, G. G. 
Dibrell, and George Maney. 

In this memorial they expressed a deep solicitude for the 
peace and quiet of the State, protested against the charge 
of hostility to the State government, or of a desire for its 
overthrow by revolutionary or lawless means, as well as 
against the charge that those who had been associated with 
them in the past days contemplated any such rashness or 
folly; nor did they believe that there was in Tennessee 
any organization, public or secret, which had such a pur- 
pose, and that, if there was, they had neither sympathy 
nor affiliation therewith. They further declared, that the 
peace of the State did not require a military organization ; 
that such a measure might bring about and promote col- 
lisions rather than conserve the harmony and good order of 
society ; and finally that they would pledge themselves to 
maintain the order and peace of the State with whatever 
influence they possessed, and would uphold and support the 
laws and aid the constituted authorities in their execution, 
trusting that a reciprocation of those sentiments would pro- 
duce the enactment of such laws as would remove all causes 
disturbing society. 

" For," they continued, " when it is remembered that 
the large mass of white men in Tennessee are denied the 
right to vote or to hold ofifice, it is not wonderful or unnatural 
there should exist more or less dissatisfaction among them. 
And we beg leave respectfully to submit to your considera- 



62 DISUNION AND RESTORATION 

tion that prompt and efficient action on the part of the 
proper authorities, for the removal of the political disabili- 
ties resting upon so many of our people, would heal all the 
wounds of our State, and make us once more a prosperous, 
contented, and united people." ' 

This memorial came too late to allay the excited minds of 
the Radicals. On the loth of September, the Legislature 
passed a bill "to preserve the public peace." This bill im- 
poses "a fine of not less than five hundred dollars, and im- 
prisonment in the penitentiary for not less than five years, 
and renders infamous any person who shall unite with, 
associate with, promote or encourage any organization of 
persons who shall prowl through the counties and towns of 
this State, by day or night, for the purpose of disturbing the 
peace or alarming the peaceful citizens of any part of the 
State. In order to secure the proper execution of this act, 
the same punishment is to be meted out to any person 
summoned as a witness, who shall fail or refuse to obey 
the summons, or who shall appear and refuse to testify ; the 
same to any prosecuting attorney who shall be informed 
of the violation of the act, and fail or refuse to prosecute 
the person informed on; the same to any officer or other 
person who shall inform any other person that he was to be 
summoned as a witness, with the intent of defeating any of 
the provisions of the act ; the same to any one who shall 
feed, lodge, or entertain or conceal in the woods, or else- 
where, any one known to such person to be charged with 
an offence under the act." 

The act further provides, that " no indictment shall be 
required for prosecution, and no indictments held insuf- 
ficient for want of form ; that where any sheriff or other 
officer shall return process issued under the act, unexecuted, 
an alias shall issue, and the officer shall give notice to the 
inhabitants of the county of such alias by posting a notice 
' See Why the Solid South, by Hilary Herbert, and others. 



KU-KLUX OUTRAGES 63 

at the court-house door, and if the inhabitants shall permit 
the defendant to be or live in the county without arrest, 
they shall be subject to an assessment of not less than five 
hundred dollars and not more than five thousand dollars; 
that all the inhabitants of the State shall be authorized 
to arrest offenders under the act, without process ; that 
every public officer shall swear that he has never been a 
member of the Ku-Klux Klan." The measure of damages 
was as follows : For entering the house or place of residence 
of any officer at night, in a hostile manner, or against his 
will, ten thousand dollars ; and for the killing of any peace- 
able individual at night, twenty thousand dollars. All other 
damages were to be assessed in proportion.' 

Even the passage of this extraordinary law did not satisfy 
Governor Brownlow. Under his guidance, the Legislature 
re-enacted the military laws, and conferred upon him the 
power to declare martial law whenever and wherever he saw 
fit. He did not suffer this prerogative to remain idle. On 
the 20th of January, 1868, he called the State Guards into 
active service. Several days later he issued the following 
proclamation : 

" Whereas, There are now sixteen hundred State Guards 
at Nashville armed and equipped under the command of 
Joseph Cooper ; and Whereas, These troops are intended 
to preserve peace and enforce the laws in counties here- 
tofore in partial rebelion. 

" Now, therefore, I, W. G. Brownlow, Governor of Ten- 
nessee, do hereby proclaim martial law in and over the 
following named counties, to wit : Overton, Jackson, 
Maury, Giles, Marshall, Lawrence, Gibson, Madison, and 
Haywood. 

"And I further direct that General Cooper distribute 
these troops at once and continue them in service until 
'Acts of Tennessee, Extra Session, 1868, p. 18. 



64 DISUNION AND RESTORATION 

unmistakable evidence is given by all parties of a disposi- 
tion to keep the peace. 

"W. G. Brownlow, 

*' Governor of Tennessee'' 

The counties named in the proclamation were among the 
richest and most populous in the State. Their prominent 
citizens were unanimous in condemning what they con- 
ceived to be the tyrannical and arbitrary action of the 
Governor. The following is a fair sample of the numerous 
protests made through the public press' : 

"Nashville, February 21, 1869. I see that martial law 
is declared over the county of Lawrence, the county I have 
the honor to represent, which I must acknowledge greatly 
astonished me, for I know of no person or persons who 
complained of any depredations in the county, or that 
there was any difficulty at all in enforcing the law in 
said county ; but on the contrary, the people of the said 
county are at this time, and have been for some months 
past, more peaceable, quiet, and law-abiding than they have 
been for the past ten years ; and only a few days ago James 
H. MacKay, sheriff, Ira J. Brown, clerk of the Circuit 
Court, and other officials of said county in a written com- 
munication to the Governor, stated that there was no 
difficulty in enforcing the civil law in said county, and 
consequently no necessity for the militia or other troops to 
enforce law, all of whom are men of respectability and 
worthy of credit, and the persons specially named above 
were soldiers of the Federal army during the late Rebellion, 
and are all now, and always have been, members of the 
Radical Republican party. 

" I am at a loss to know why troops should have been 
quartered upon the people of my county without consult- 

' Union and American, February 2i, 1869. 



KU-KLUX OUTRAGES 65 

ing their immediate Representative. I think surely some 
person or persons have made misrepresentations to the 
Governor, and sincerely hope that the order will be revoked 
and save my people the mortification and expense of having 
troops quartered amongst them in times of profound peace. 
' Let us have peace.' 

"W. P. H.Turner, 
" Representative, Lawrence County'' 

Governor Brownlow answered these protests by declaring 
his intention to further extend the sway of martial law. 
But fortunately for the peace of the State, only a few days 
of his term as Governor remained. Under his successor the 
troops were withdrawn and the military laws were repealed. 
A state of tranquillity quickly ensued. 



CHAPTER X 

CLOSE OF THE RADICAL DOMINATION 

After the recognition of the loyal government by Congress, 
the only hope of the disfranchised ex-Confederates of re- 
gaining political control of the State lay in a division in the 
ranks of the Union party. So long as Governor Brownlow 
remained at the head of affairs, no such division occurred. 
He served as Governor the full term of two years, and was 
re-elected. Before the expiration of his second term, he 
was chosen by the Legislature to represent Tennessee in the 
United States Senate. According to a provision of the 
State constitution, the vacant governorship descended to 
De Witt Senter, Speaker of the State Senate. Mr. Senter 
was inducted into ofifice on the 29th of February, 1868. 

Three years had now passed since the close of the war, 
and the restoration of civil government, but the majority 
of the white citizens still remained disfranchised, and no 
steps had been taken to remove their disqualifications. In 
speaking of this aspect of the situation, Mr. Fletcher, Sec- 
retary of the State, said : " Our mistake was that we made 
the franchise law sweeping and perpetual, offering no hope 
or inducement to the ex-rebel to become loyal. The man 
who is disfranchised in a republic is not apt to feel that it 
is his government, or to take pride or interest in it, nor apt 
to make a useful or even law-abiding citizen of it. I do not 
feel comfortable in a State where half of the people and 
two thirds of the tax-payers are publicly degraded by law, 
without motive to be proud of the State and government." 

Upon the day of Governor Senter's inauguration, the air 
was filled with rumors and signs of coming changes. Whether 

66 



CLOSE OF THE RADICAL DOMINATION 67 

it would be a violent eruption or a peaceful change through 
constitutional means, no one could foresee. In the great 
crowd which gathered at the Capitol to hear the inaugural 
address, there was noticed by the press reporters a number 
of distinguished Southern leaders. This in itself was con- 
sidered a harbinger of the coming storm. The address 
proved disappointing to all. It was expected that the 
Governor would give some intimation of the policy he 
intended to pursue, but he simply expressed his apprecia- 
tion of the ofifice to which he had been elevated, and his 
•desire to see peace and prosperity restored to the State. 

There was little of interest in the character or career of 
the new Governor. He was born in Granger County in 
1833. His father, William F. Senter, had represented 
the Second Congressional District in the Twenty-eighth 
Congress. Although Governor Senter had been chosen 
Speaker of the Radical Senate he had never shown himself 
an extreme partisan. He had even been a member of the 
secession Legislature of 1861 ; but Congress had relieved him 
of his political disabilities on the 22d of December, 1868. It 
was therefore with a hopeful expectancy that the people of 
Tennessee hailed his advent into the ofifice of Governor. 

But before Governor Senter could make any change in the 
administration, the State was plunged into a heated campaign 
to elect his successor. He was entitled by the Constitution 
to serve out Brownlow's unexpired term, but only a few 
months remained of that. His aspirations naturally went 
beyond his brief /r^ teni. term, and he, therefore, announced 
his intention of becoming a candidate subject to the ap- 
proval of the Union party. 

A new candidate soon appeared in the person of W. B. 
Stokes. Mr. Stokes was the Representative of the Third 
District in Congress. His record had been somewhat 
similar to that of Governor Senter. At the beginning of 
the war he had identified himself with the secession move- 



68 DISUNION AND RESTORATION 

ment, but had quickly deserted what he saw to be a 
sinking ship. After the war, as if to make amends for 
his past conduct, he became one of the most extreme and 
bitter Radicals. 

At first, the canvass was a mere personal contest, having 
little significance to any one except the Radical leaders. A 
Convention of the Union party was called to meet in Nash- 
ville on May 22d. Both candidates pledged themselves to 
abide by the decision of this Convention. 

Ex-President Johnson's return to Tennessee at this time 
added to the uncertainty of the contest. He was still a 
power in Tennessee politics, and it was rumored that he 
might enter the race as a Conservative Democrat. The 
Radical Convention assembled in Nashville on the day 
appointed. It was called to order by Thos. Cates, chairman 
of the Central Committee, who was a Stokes man. After the 
reading of the call, Judge Houck moved that Mr. Pearne, 
a friend of Governor Senter, be made temporary chairman of 
the Convention. His motion having failed to be recognized 
by Mr. Cates, he put it to the House himself and declared 
Mr. Pearne elected. Mr. Pearne attempted to reach the 
chair, but was forcibly prevented. This resulted in a hand- 
to-hand contest between the delegates. Failing to perfect 
a temporary organization, the Convention adjourned until 
the following day. But at the second meeting the disgrace- 
ful scenes of the first were repeated. It finally dissolved 
amid the utmost confusion. 

The Union and American, a daily newspaper, published in 
Nashville, contained the following report of the Convention's 
proceedings. 

"The so-called Radical State Convention, the most dis- 
graceful, profane, and vulgar assemblage of nnen ever con- 
gregated in the State to consider public affairs, came to an 
abrupt termination yesterday, after an ineffectual attempt 
of two days to organize. It simply dissolved. It could not 



CLOSE OF THE RADICAL DOMINATION 6g 

even adjourn. It had no chairman, no secretary, and could 
not even transact any business. It met as if by chance, and 
dispersed from necessity. It was an agglomerate discord, 
an inflamed mob filled with mean whiskey and meaner 
passions. It was a meeting of mortal enemies under the 
guise of friendship to decide the spoils of misdeeds and 
crimes. They quarrelled and fought, and called each other 
liars and thieves, and all manner of epithets. Such a con- 
gregation of vulgar elements, so fierce, so bitter, and so 
reckless, was never seen before in this section of the Union. 

" This assemblage of Radicals was called together to coun- 
sel for the good of the State, and present to the people a 
person of such fair name and true patriotism as to be worthy 
of them and the State for their chief executive ! " 

The above description was written by a " rebel " editor, 
but the following account, taken from the Knoxville Whig, 
is scarcely less severe : " We share in the regret of all good 
Republicans that the late Convention was so divided, bois- 
terous, disrupted. We have attended many conventions, 
national and State. We never attended one in which such 
injustice, violence, and fraud were practised." 

These two pictures of the Convention, drawn from differ- 
ent standpoints, give us some idea of the kind of men that had 
ruled Tennessee for four years. At last the household was 
divided against itself ; it was only a matter of a few weeks 
until it should fall. 

The Senter faction attempted to throw the blame for the 
disrupted Convention upon Mr. Stokes and his friends. 
They denied the charge, and asserted that at least sixty- 
four counties had been instructed for Mr. Stokes, which 
would have insured him the nomination. The result of 
the discussion was that Governor Senter and Mr. Stokes 
declared their intentions to " fight it to a finish at the polls." 
They began at Nashville, January 5th, a joint canvass of the 
State. A direct issue was soon made between them on the 



70 DISUNION AND RESTORATION 

franchise question. Governor Senter declared " that the 
time has come, and is now, when the limitations and dis- 
abilities which have found their way into our statute-books,, 
as the result of the war, should be abolished and removed^ 
and the privilege of the elective franchise be restored, and 
extended so far as to embrace the mass of the adult popu- 
lation of the State." 

Mr. Stokes thus defined his position: " When the killing 
of Union men ceases, the hellish organization of Ku-Klux 
is abandoned, and the laws are observed, then I am willing 
to entertain a proposition to amend the State constitution 
so far as to allow the disfranchised to come in gradually, by 
providing that the Legislature may by a two thirds vote 
remove the disabilities for those who petition, and come well 
recommended by their loyal neighbors." 

After these declarations of principles the struggle became 
one of paramount importance to the whole people of the 
State. 

As the time for the election approached, and the official reg- 
istration began, signs of uneasiness appeared among the sup- 
porters of Mr. Stokes. They felt confident that the majority 
of the Radical votes were for their candidate, but they real- 
ized that Governor Senter was " master of the situation. "^ 
He had control of the same machinery Governor Brownlow 
had employed so successfully in changing the results of 
Congressional and State elections. Would Governor Senter 
use this in his own behalf, thus destroying the Radical party 
with an instrument of their making? This question was 
asked and discussed both upon the stump and in the news- 
papers. 

The election occurred on the 5th day of August. At 
the same time the election for the State Legislature was 
held. The issue was the same as in the gubernatorial con- 
test — that is, universal suffrage or continued disfranchise- 
ment. Contrary to expectations, the election passed without 



CLOSE OF THE RADICAL DOMINATION "J I 

any serious conflicts or disturbances of the peace. The 
result was not long in doubt. It could be seen on the fol- 
lowing day from the partial returns that Governor Senter 
had been elected by an enormous majority. 
The ofificial returns were as follows: 

Senter. Stokes. 

East Tennesssee 23,877 22,471 

Middle " 58,646 19,149 

West " 37,681 13,209 

120,204 54,874 

54,874 

Senter's majority 65,330 

The Conservative candidates to the Legislature, who stood 
upon the same platform as Governor Senter, were elected 
almost to a man. 

Immediately after election, Mr. Stokes and his friends 
raised the cry of fraud. They lost no time in hurrying to 
Washington in order to bring pressure to bear upon Presi- 
dent Grant to declare the election void. Mr. Stokes set 
forth his claims in a lengthy interview. He said in part : 
*' Governor Senter being governor or acting-governor had the 
appointment of the registrars of the election. He put in 
such men as he thought would do his bidding. They at 
once opened the flood-gates and let everybody in, the dis- 
franchising clauses of the Constitution were trodden under 
foot and entirely disregarded, certificates of qualification as 
voters were issued to disfranchised rebels, and even boys of 
sixteen and seventeen were allowed to vote. Besides this 
there was a course of intimidation pursued under the in- 
struction of Senter which prevented hundreds of Republi- 
cans from voting. You see Senter was governor. He had 
militia and intended to use them, if necessary, to elect him- 



^2 DISUNION AND RESTORATION 

self. In many cases where the rebels had the upper hand 
the Republicans, especially the negroes, could not vote in 
their precincts for fear of violence. What defeated me was 
the rebels who were disfranchised under the constitution. 
I got 56,000, which was Grant's vote last fall. Seymour's 
was 33,000 last fall, but Senter's vote was this time 119,000. 
The 86,000 additional which Senter got were rebels and 
minors." 

These charges made by Mr. Stokes were replied to in the 
daily press by Governor Senter. He claimed that it was un- 
fair to compare the vote in the recent election with the 
presidential election of the previous fall. In the presiden- 
tial election the Republicans were sure of the result in the 
State, so they had made no effort to bring out a full vote. It 
would be much fairer to take the vote cast in the gubernato- 
rial election of 1867 as the standard by which to measure 
the result of the recent election. In 1867, Governor Brown- 
low's vote was 19,900 more than Mr. Stokes had received, 
yet the registration of 1867 exceeded the vote cast by over 
20,000. The old registration law was still in force, but had 
been modified by a decision of the Supreme Court which 
admitted at least 40,000 votes which had been kept out in 
1867. In other words, Mr. Senter claimed he could have 
received a majority of 20,000 had there been no new regis- 
tration. The newly appointed registrars, referred to in Mr. 
Stokes's interview, were, with the exception of three tenths, 
regularly discharged Federal soldiers. 

Mr. Stokes in his efTorts to secure Federal intervention 
was supported by all the Radical leaders. Many of those 
who had supported Governor Senter in the election were 
now most active in the attempt to prevent his induction 
into ofifice. Among the first to change front was Mr. 
Brownlow. Early in the contest he had favored the nomi- 
nation of Governor Senter. After the disruption of the 
Radical Convention, he still continued to support Governor 



CLOSE OF THE RADICAL DOMINATION 73 

Senter. It was not until after election that he seemed 
to realize that Governor Senter's victory meant the return 
to power of the ex-Confederate and consequently the down- 
fall of Radical domination. 

President Grant turned a deaf ear to the entreaties of the 
Radical leaders. They sought Congressional action, but 
met defeat here also, as Congress passed a resolution thank- 
ing President Grant for his refusal to interfere with affairs in 
Tennessee. 



CHAPTER XI 

CONSTITUTIONAL CONVENTION OF 1 8/0 

While the Radical leaders were engaged in their futile 
efforts at Washington to obtain Federal intervention, the 
Legislature convened at Nashville, and Governor Senter was 
inaugurated with the usual ceremony. Both the Governor 
and the Legislature manifested a desire to fulfill their elec- 
tion pledges, by restoring the franchise to the ex-Confeder- 
ates, but the manner in which this should be accomplished 
was not at first very apparent. 

In the Constitution, as it was prior to the war, the suffrage 
qualifications had been clearly stated and no power had 
been vested in the Legislature to alter them. It was in vir- 
tue of the amendments adopted by the Radical Convention 
of 1865, that the Legislature had passed the disfranchising 
acts of 1866 and 1867, 

The simple repeal of these acts would have re-enfranchised 
the ex-Confederates, but it would have left unsettled a num- 
ber of perplexing problems resulting from the war. It was 
felt that the solution of these questions should not be left to 
the Legislature, as its members were all Union men, and 
therefore did not represent the whole political body. It 
was also recognized that the questions to be settled were of 
a constitutional character, and could be properly dealt with 
only by a constitutional Convention. 

These considerations led to the passage of an act which 
authorized the Governor to put to a vote of the people the 
question of holding a constitutional Convention. At the 
same election delegates were to be chosen. Every male 
person not convicted of infamous crime, of the age of 

74 



CONSTITUTIONAL CONVENTION OF 1870 75 

twenty-one, and a citizen of the United States, and a citizen 
of the State of Tennessee was allowed to vote. The elec- 
tion was held on the 3d of December and resulted in a large 
majority in favor of the Convention. 

The first constitutional Convention in the history of the 
State was the one which had met in Knoxville, and framed 
the Constitution under which Tennessee had been admitted 
into the Union.' Conspicuous among the members of the 
first Convention were John Sevier and Andrew Jackson. 
The constitution they adopted was modelled after that of 
the mother State, North Carolina. In 1834, a second Con- 
vention met at Nashville, and modified the old Constitution, 
so as to bring it into harmony with the industrial changes of 
the first quarter of a century. The next assertion of con- 
stituent powers was in 1861, when the Legislature passed 
the Declaration of Independence, and the Ordinance of 
Union with the Confederacy. In 1865, the Radical Conven- 
tion, as we have seen, framed a number of constitutional 
amendments. 

The newly elected convention assembled at Nashville on 
the loth day of January. The character of its members was 
a guaranty that its action would be Conservative. It has 
been pronounced the most intelligent body ever elected in 
Tennessee for any purpose. John C. Brown, an ex-major- 
general of the Confederate army, was elected to preside 
over its deliberations. As the Authorization Act did not 
limit the power of the Convention, it was at liberty to enter 
into a thorough-going provision of the constitution, but it 
manifested from the start the intention to confine itself to 
the task of settling the question growing out of the war. 
Chief among these was negro suffrage. 

The Fifteenth Amendment to the Constitution of the 
United States had not yet been adopted, so it was still 
in the power of the State to withhold the franchise from 

' Caldwell's " Studies in the Constitutional History of Tennessee." 



']^ DISUNION AND RESTORA TION 

the negro. In the discussion of this suffrage question, the 
Convention was divided into three factions. The Union 
delegates, who were greatly in the minority, favored uni- 
versal suffrage. The extreme opposite opinion was ex- 
pressed in the minority report of the Suffrage Committee : 
" We hold that the negro race is the lowest order of human 
beings, incapable in themselves of a virtuous intelligence, or 
free government ; and for the truth, we appeal to history, 
and challenge the world to show a single exception. We 
hold that the inferiority of the negro to the white man, in 
race, color, and capacity for permanent, well-ordered govern- 
ment has been fixed by Him who ' doeth all things well,' 
and whose natural or revealed law has never been violated 
by any human government without disaster and confusion." 
In the abstract, the above statement undoubtedly repre- 
sented the view of a majority of the delegates. But the 
conservative men of the Convention recognized that the re- 
jection of negro suffrage would strengthen the Radicals in 
their efforts to obtain Federal intervention. Considerations 
of political expediency led, therefore, to the adoption of the 
following provision in regard to suffrage : " Every male 
person of the age of twenty-one years, being a citizen of the 
United States, and a resident of this State for twelve 
months, and of the county wherein he may offer his vote, 
for six months next preceding the day of election, shall be 
entitled to vote for members of the General Assembly, and 
all civil officers of the county or district in which he resides, 
and there shall be no qualification attached to the right 
of suffrage, except that each voter shall give to the judge of 
the election, where he offers to vote, satisfactory evidence 
that he has paid the poll taxes assessed against him for such 
preceding period as the Legislature shall prescribe, and at 
such time as may be prescribed by law, without which his 
vote cannot be received." ^ 

' yournal of the Constitutional Convention of i8jo. 



CONSTITUTIONAL CONVENTION OF iSjO JJ 

After fixing the suffrage qualifications, all the important 
changes in the constitution proposed by the Convention, 
were directed, with possibly two exceptions, towards the 
prevention of the recurrence of the political abuses, from 
which the State had suffered under the Radical adminis- 
tration. Fresh in the minds of all were the arbitrary acts of 
Governor Brownlow in suspending the writ of habeas corpus, 
and proclaiming martial law. A number of limitations were, 
therefore, placed upon the military power of the Governor. 
It was provided that " the militia shall not be called into 
service except in case of rebellion or invasion, and then only 
when the General Assembly shall declare by law that the 
public safety requires it." The Bill of Rights was so 
amended that " the writ of habeas corpus shall not be 
suspended, unless when, in case of rebellion or invasion, 
the General Assembly shall declare the public safety re- 
quires it." 

Another flagrant abuse under Radical rules had been the 
too frequent meeting of the Legislature. During the four 
years of Governor Brownlow's administration, it had been 
in almost continuous session. To remedy this, regular ses- 
sions were made biennial, and it was provided that no 
member " shall be paid for more than seventy days of the 
regular session, or for more than twenty days of an extra 
or called session." 

The two important changes in the constitution, which 
had no relation to the disturbed political conditions result- 
ing from the war, were the creation of a homestead 
exemption, and the delegation to the Legislature of the 
power to pass general laws for the organization of private 
corporations. 

Having completed its labors, the Convention proceeded 
to the Capitol, and, in the presence of both Houses of the 
Legislature, it placed the revised constitution in the hands 
of the Governor. By him it was submitted to a vote of the 



78 DISUNION AND RESTORA TION 

people, and ratified by a vote of 98,128 for, to 33,872 
against. 

At the first State election that occurred under the pro- 
visions of the new Constitution, the Democrats regained 
political control of the State. This ended the Reconstruc- 
tion Period in Tennessee. 



AUTHORITIES. 

Acts of Tennessee: Extra Session, 1861 ; 2d Extra Session, 1861 ; 1861- 
62 ; 1865 ; 1865-66 ; Extra Session, 1866 ; 1868 ; 1869 ; 1869-70 ; 1870 ; 1870- 
71 ; 1871 ; 1872 ; 1S73 ; 1875 ; 1877 ; 1879 ; 1881. Extra Session, 1881 ; 
1882; 1883. 

Barnes, W. H. " History of the Thirty-ninth Congress." 

Bate, W. B. Messages to the General Assembly. 

Blaine, James G. " Twenty Years of Congress." 

Brown, John C. Messages to the General Assembly. 

Brownlow, W. G. " Sketches of the Rise, Progress, and Decline of Seces- 
sion, with a Narrative of Personal Experiences among the Rebels." 
Philadelphia, 1862. 

Caldwell, Joshua W. "Studies in the Constitutional History of 
Tennessee." Cincinnati, 1895. 

Cox, S. S. " Three Decades of Federal Legislation." 

Dunning, W. A. " Essays on the Civil War and Reconstruction." New- 
York, 1898, 

Everett, Edward. " Account of the Fund for the Relief of East 
Tennessee." Boston, 1864. 

Harris, Isham G. Messages to the General Assembly. 

Hawkins, Alvin. Messages to the General Assembly. 

House Journals for 1865, 1865-66, 1866. Extra Session, 1866, 1867-68. 
Extra Session, 186S, 1868-69, 1869-70. 

Humes, Thomas William. "The Loyal Mountaineers of Tennessee." 
Knoxville, 1888. 

Journal oj the Constitutional Convention of 1870. 

Knoxville Whig, Knoxville, Tennessee. 

Mark, Albert. Messages to the General Assembly. 

MacPherson, Edward. " History of the Rebellion." 

MacPherson, Edward. " History of the Reconstruction." 

Miller, Chas. A. "-The Official and Political Manual of the State of 
Tennessee." Nashville, 1890. 

Report of the Committee Appointed to Investigate the State Debt. Appendix 
to the Senate Journal ior 1879. 

Scott, W. A. " The Repudiation of State Debts." New York, 1893. 

Senate Journal lov 1865, 1866, 1867-68, 1868-69. Extra Session, 1868. 

Senter, De Witt. Message to the General Assembly. 

Townsend's Records of the Great Rebellion. 

The Union and American, Nashville. 

" Why the Solid South ?" Hilary Herbert, Baltimore, 1890. 

Wilson, Henry. " History of the Rise and Fall of the Slave Power." 

79 



MAR 13 19H 



O 



VITA 

The author of this dissertation, John Randolph Neal, was 
born September, i6, 1874, at Rhea Springs, Tennessee. His 
early education was received at the public schools in Ten- 
nessee and Washington, D. C. In 1890, he entered the Uni- 
versity of Tennessee and was graduated in 1893 with the 
degree of A.B. During the years 1893-96, he pursued 
graduate work in Vanderbilt University, taking courses in 
History, Economics, Literature, and Philosophy. In 1894, 
he received the degree of A.M. ; and in 1896, the degree of 
LL.B. 

Since 1896, Mr. Neal has been a graduate student at 
Columbia University. He has had Constitutional and 
Administrative Law as a major subject, and Roman Law, and 
Political Economy and Finance as minor subjects. He has 
attended courses given by Professors Burgess, Goodnow, 
Munroe Smith, Mayo-Smith, Moore, and Seligman. 

While at Vanderbilt, Mr. Neal held university scholar- 
ships in Economics and History. At Columbia, he has been 
University Scholar in Political Science and Public Law. 



80 



I 



